fire department cooperative services feasibility study

Fire Department Cooperative Services Feasibility Study

August 2019

Aberdeen & Hoquiam Fire Departments

Washington

Cities of

Cooperative Services Feasibility Study Aberdeen & Hoquiam Fire Departments

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TABLE OF CONTENTS

Executive Summary ..................................................................................................................... 1

Purpose and Approach .....................................................................................................................................1

Summary of Analysis ........................................................................................................................................1

Staffing .........................................................................................................................................................2

Resource Deployment ..................................................................................................................................2

Service Delivery ............................................................................................................................................5

Findings ............................................................................................................................................................6

Recommendations ...........................................................................................................................................6

Integrated Organizational Structure ................................................................................................................8

Current Conditions .................................................................................................................... 10

Organizational Overview ............................................................................................................................... 10

The Region ................................................................................................................................................. 10

Response Comparison ............................................................................................................................... 16

Management Components ........................................................................................................................... 18

Capital Assets ................................................................................................................................................ 21

Facilities ..................................................................................................................................................... 21

Apparatus .................................................................................................................................................. 26

Apparatus Staffing .................................................................................................................................... 29

Staffing & Personnel Management ............................................................................................................... 30

Union Agreements ..................................................................................................................................... 34

Administrative Support Staffing ................................................................................................................ 35

Emergency Operations Staffing................................................................................................................. 36

Effective Response Force Analysis ............................................................................................................. 38

Wages & Benefits ...................................................................................................................................... 41

Operations Work Schedules ...................................................................................................................... 43

Service Delivery and Performance ................................................................................................................ 46

Demand Analysis ....................................................................................................................................... 46

Resource Distribution Analysis .................................................................................................................. 52

Resource Concentration Analysis .............................................................................................................. 61

Resource Reliability Analysis ..................................................................................................................... 63

Response Performance Analysis ................................................................................................................ 66

Mutual and Automatic Aid Systems .......................................................................................................... 73

Training Program ........................................................................................................................................... 76

Training Resources & Methodology .......................................................................................................... 76


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General Training Competencies ................................................................................................................ 76

Training Manual, Methodologies, & Scheduling ....................................................................................... 77

New Personnel Training ............................................................................................................................ 77

Incumbent & Specialized Training Hours .................................................................................................. 77

Training Program & Administration .......................................................................................................... 78

Training Program Discussion ..................................................................................................................... 78

Specialized Emergency Response .............................................................................................................. 79

Specialized Emergency Response Discussion ............................................................................................ 79

Prevention & Life-Safety ............................................................................................................................... 82

Fire & Life-Safety Code Enforcement......................................................................................................... 83

Fire-Cause Investigation ............................................................................................................................ 86

Data Collection & Analysis ........................................................................................................................ 87

Public Education & Prevention Programs ................................................................................................. 87

Communications ........................................................................................................................................... 91

Emergency Communications Center ......................................................................................................... 91

Fire Public Safety Radio Network .............................................................................................................. 95

Fire Department Mobile Communications ................................................................................................ 96

Planning for Fire Protection & EMS .............................................................................................................. 98

Emergency Preparedness and Response Planning .................................................................................... 98

Administrative Planning .......................................................................................................................... 100

EMS Support & System Oversight ............................................................................................................... 102

EMS Equipment & Supplies Inventories................................................................................................... 109

EMS Operations & Deployment ............................................................................................................... 109

General EMS Discussion .......................................................................................................................... 113

Patient Characteristics ............................................................................................................................ 116

Community Paramedicine Program ........................................................................................................ 117

Fiscal Analysis .............................................................................................................................................. 118

Economic Setting ..................................................................................................................................... 118

Future Opportunities for Cooperative Efforts ........................................................................... 130

General Partnering Options ........................................................................................................................ 130

Status Quo ............................................................................................................................................... 130

Contract for Services ............................................................................................................................... 131

Regional Fire Authority............................................................................................................................ 133

Formation of a Municipal Fire District .................................................................................................... 135


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Strategies for Shared Services ..................................................................................................................... 137

Strategy A: Status Quo ............................................................................................................................ 137

Strategy B: Contract for Services ............................................................................................................. 139

Strategy C: Regional Fire Authority ......................................................................................................... 149

Strategy D: Formation of a Municipal Fire District.................................................................................. 157

Findings ....................................................................................................................................................... 166

Recommendation—Step 1....................................................................................................................... 167

Recommendation—Step 2....................................................................................................................... 168

Implementation .......................................................................................................................................... 168

Contract for Services ............................................................................................................................... 169

Municipal Fire District ............................................................................................................................. 170

RFA Plan .................................................................................................................................................. 171

Appendix A: Table of Figures ................................................................................................... 172


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EXECUTIVE SUMMARY

The cities of Aberdeen and Hoquiam engaged Emergency Services Consulting International (ESCI) on behalf of

the Aberdeen Fire Department (AFD) and Hoquiam Fire Department (HFD) to conduct a Fire Department

Cooperative Services Feasibility Study. After the departments gathered the information and data requested

by ESCI in preparation for the study, the project team arrived in the two cities to conduct a site visit to validate

information and interview stakeholders. The site visit by four ESCI team members occurred January 8-10,

2019. An additional ESCI consultant conducted work remotely to conduct a fiscal analysis.

Purpose and Approach The purpose of a Fire Department Cooperative Services Feasibility Study is to evaluate the agencies in relation

to each other, the risk profile for each community, anticipated community growth (and therefore associated

risk), and where there might be inefficient duplication of service (and therefore potential efficiencies through

integration or partnership). In short, a Cooperative Services Feasibility Study focuses on the potential for

economies of scale, leveraging strengths, shoring up weaknesses, and generally identifying strong partnership

opportunities. It identifies for the policy-makers of each agency which options and which partners are most

advantageous as well.

The first phase of this study was to gather agency baseline data for each of the two agencies through an

extensive data request, and conduct a detailed site assessment to validate the data provided. The second

phase was to conduct a baseline assessment of the current conditions and current service performance of

each participating fire department. The purpose of this phase was to assess each agency’s infrastructure,

operations, and service delivery in comparison to the other and to industry standards and best practices where

available, as well as to create a benchmark against which the options for integration can be measured. Areas

reviewed for this phase included:

Organization Overview Service Delivery and Performance

Management Components Training Program

Fiscal Analysis Fire Prevention & Risk Reduction

Capital Assets Staffing & Personnel Management

The third phase was to assess the Future Opportunities for Cooperative Service between the various agencies,

the Efficiencies & Risks available/posed by various approaches, and Finances and Governance Opportunities.

It concludes with a Findings and Recommendations section based on all the previous analyses.

Summary of Analysis Each fire department provides the highest quality service available within their individually constrained

means. There are numerous approaches to service delivery, which include staffing configurations, deployment

of resources, and response performance.


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Staffing

Currently, Hoquiam has the top two fire department positions vacant; the Fire Chief and the Assistant Chief.

Wisely, Hoquiam contracted for fire department leadership services from Aberdeen to preserve the potential

to integrate without complicating an integration with potentially redundant leadership positions. Aberdeen’s

Fire Chief and Assistant Chief are sharing the leadership role for both fire departments until such time as the

elected officials make a decision, presumably based in large part on this study.

Both cities are almost mirror images of the other, with one distinct difference, and that is Hoquiam using a

Shift Captain as a Shift Commander (pulling the captain off of Engine 1 to run the shift command unit) versus

having a separate Shift Battalion Chief to perform that function. That difference compromises the capabilities

of Hoquiam Engine 1 when its Captain is on another unit. Otherwise, the similarities are as follows: both fire

departments are fully career staffed; both operate two fire stations each; both provide advanced life support

medical transport services to their city and to an extended service area outside of their respective cities. The

following chart displays a side-by-side comparison of the administrative and emergency services personnel on

shift at both agencies.

Administrative Positions AFD HFD

Fire Chief 1 1

(vacant)

Assistant Chiefs 1 1

(vacant)

Total Uniformed Administrative Positions 2 0

Operational Positions AFD HFD

Battalion Chiefs 3 N/A

Captains 6 6

Driver Operator/EMT-IV 3 2

Driver Operator/Paramedic 3 4

Firefighters-EMT 2 3

Firefighters-EMT-IV 2 0

Firefighters/Paramedic 14 6

Total Operational Positions 33 21

% of Operational Officers to Firefighters 27% 28%

Resource Deployment

Resource deployment for each agency essentially reflects three elements: the response time standard the

agency is trying to achieve; the areas with the highest level of risk the fire agency is trying to protect; and the

areas of highest probable demand for services, which are predominantly driven by population density. The

following map depicts the location of response stations and the population density for the region.


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The spacing of fire stations in Hoquiam and Aberdeen appropriately serve urban population centers where

demand for service is likely to be highest. Commercial development is also within quick reach of responding

units. The stations are well positioned to respond to their currently separate risks and complement each other

to respond to their collective risks well if integrated.


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The following map depicts the location of emergency incidents which occurred between July 2018 and April

2019 (most recent uniform data set available during the analysis), and overlays travel time assuming all units

are in quarters and available to respond immediately. Overall, approximately 98 percent of the emergency

incidents occurring during that time were within four minutes’ travel time from an existing fire station (slightly

less than 98% in Aberdeen and slightly more than 98% in Hoquiam). This is exceptional coverage.


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Service Delivery

Both fire departments fall under the jurisdiction of National Fire Protection Association (NFPA) Standard 1710.

NFPA 1710: Standards for the Organization and Deployment of Fire Suppression Operations, Emergency

Medical Operations, and Special Operations to the Public from Career Fire Departments calls for specific

staffing levels and specific response performance times. The following table illustrates the travel time

performance required to achieve NFPA 1710.

Response Element NFPA Recommendation

Call Processing1,2 < 64 Seconds @ 90th Percentile

Turnout Time < 60 Seconds @ 90th Percentile for EMS < 80 Seconds @ 90th Percentile for Fire

Travel Time (First unit on scene-Fire or EMS) < 4 Minutes’ Travel (240 seconds) @ 90th Percentile

Travel Time-Full First Alarm (Fire Suppression Incident) < 8 Minutes’ Travel (480 Seconds) @ 90th Percentile

The following chart depicts response performance (turnout time plus travel time) for the first arriving unit

separated by agency and by call type.

While averages are also calculated, ESCI focuses on the 90th percentile, which is the national standard, is an

industry best practice, and is the best predictor of future achievement. The response performance is

surprisingly consistent within and between agencies.

1 NFPA 1221: Standard for the Installation, Maintenance, and Use of Emergency Services Communications Systems.

2 See NFPA 1221 Chapter 7, Section 7.4 for exceptions to call processing time recommendation for specific call types.

EMS Fire/Other EMS Fire/Other EMS Fire/Other

AFD HFD Overall

Average 05:31 05:34 04:37 05:14 05:19 05:29

90th Percentile 08:11 08:31 06:59 07:45 07:56 08:22

00:0000:3001:0001:3002:0002:3003:0003:3004:0004:3005:0005:3006:0006:3007:0007:3008:0008:3009:00


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Findings The two fire agencies vary only slightly. They both serve their cities from two fire stations and their apparatus

configurations are similar. Aberdeen is more densely populated than Hoquiam. Both agencies provide

advanced life support (ALS) ambulance transportation services to their constituents, as well as to a larger

regional network of agencies which brings in additional revenue for each agency. Both are challenged to meet

the needs of their communities while meeting the needs of the broader region for ALS transport services.

Hoquiam has an EMS levy in place to help fund their ALS transport service; Aberdeen does not.

The staffing levels for both organizations are severely limited—Hoquiam’s is especially so—relying on cross-

staffing of units depending on the call type being requested. The Shift Commander position is a Shift Battalion

Chief in AFD, which is a standard approach for fire service organizations. Hoquiam’s Shift Commander is a Shift

Captain who is part of the crew strength at Headquarters but also staffs the command vehicle at the

Headquarters Station.

The two cities cooperate on responses when requested, but there are numerous strategic partnerships that

could be explored by the agencies for greater efficiency. Regardless of the path(s) chosen by the agencies as

it pertains to this report, the participants should pursue these regional efforts for cost effectiveness,

efficiency, and for the benefit of their respective citizens. These include:

• Vehicle Repair and Maintenance Services

• Training Division

• Fire Investigation Team (FIT)

• Recruit Academy

• Peak Demand Response Unit (Dropped Boundary)

• Regional Logistics Division

▪ Joint Purchasing & Supply Standardization

▪ Warehousing of Replenishable Supplies

▪ Just-in-Time Inventory Management & Delivery

• Regional Command Officer Response (Dropped Boundary)

• Leadership (One Fire Chief serving both cities)

Recommendations Of the major options or strategies considered, three were identified as desirable and worthy of pursuit. They

are as follows:

• Strategy B (Contract for Services)

• Strategy C (Regional Fire Authority)

• Strategy D (Municipal Fire District)


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ESCI recommends pursuing a contract for services as the first of a two-step process to integration. This allows

the kinks to be worked out, but without a permanent commitment to integration. While potentially viewed

as an advantage, it is also a disadvantage having no permanent commitment to integration. Agencies who

enter into these processes without a permanent commitment to integration are not inclined to put the work

in to make a permanent commitment to integration, essentially staying safe in this intermediate step.

However, some partnerships need to take this first step in order to build trust and gain confidence based on

actual experience working together. Thus, ESCI offers this intermediate step as a cautious approach. If the

agencies are committed to integration, this step can be skipped and the second step implemented.

The second step can either be the formation of a regional fire authority or the formation of a municipal fire

district. Both result in an integrated agency serving both cities and both result in a separate tax base to provide

this service, which comes as a reduction in taxes from the cities and the elimination of the fire department as

an expense. The financial analysis of the two approaches follow.

The financial comparison for both cities and a regional fire authority (RFA) is illustrated in the following table.

Levy Source by Agency

2020 Levy Rate Taxes Paid

Status Quo RFA Difference Difference % of Total Taxes Paid

Aberdeen FD* Regular (3.1094 estimated) $ 2.4246 $ 1.5000 $ (0.9246) EMS $ - $ 0.5000 $ 0.5000

Excess $ - $0.7344 $0.7344

Total $ 2.4246 $2.7344 $0.3098 $303,107 12.8%

Hoquiam FD* Regular (3.3681 estimated) $ 2.2678 $ 1.5000 $ (0.7678) EMS $ 0.4769 $ 0.5000 $ 0.0231

Excess $ - $0.7344 $0.7344

Total $ 2.7447 $2.7344 $(0.0103) $(4,657) -0.4%

* The forecasted regular levy rate for the two cities is listed in parentheses. The figure used in the chart represents the effective levy rate of forecasted city's fire expenses.

The financial comparison for Aberdeen forming a municipal fire district is illustrated in the following table.

Aberdeen Fire Dept.*


Status Quo Municipal Fire

District Difference Difference

% of Total Taxes Paid

Regular (3.1094 estimated) $ 2.4246 $ 1.5000 $ (0.9246)

EMS $ - $ - $ -

Excess $ - $ 1.1102 $ 1.1102

Total $ 2.4246 $ 2.6102 $ 0.1856 $ 181,533 7.7%

* The forecasted regular levy rate for Aberdeen is listed in parentheses. The figure used in the chart represents the effective levy rate of forecasted city's fire expenses.


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The financial comparison for Hoquiam forming a municipal fire district is illustrated in the following table.

Hoquiam Fire Dept.*






EMS $ 0.4769 $ 0.5000 $ 0.0231

Excess $ - $ 0.9417 $ 0.9417

Total $ 2.7447 $ 2.9417 $ 0.1970 $ 88,924 7.2%

* The forecasted regular levy rate for Hoquiam is listed in parentheses. The figure used in the chart represents the effective levy rate of forecasted city's fire expenses.

In the municipal fire district strategy, whichever city forms a municipal fire district would annex the other city,

integrating the two with a single tax base, which is reflected in a reduction of the tax base for each city.

Integrated Organizational Structure By integrating the two organizations, efficiency is gained in that it eliminates the vacant Hoquiam Fire Chief,

utilizes the Aberdeen Battalion Chiefs in Hoquiam, thus allowing the Hoquiam Shift Commanders to serve on

engine companies full-time as originally intended (increasing Hoquiam Engine 1 staffing). It fills the vacant

Assistant Chief for Hoquiam, but within a framework that complements the administrative positions retained

by Aberdeen. Reserve apparatus can be reduced for both agencies since only one reserve fire engine is

required for every eight front line fire engines, and one reserve ladder truck for every frontline ladder truck.

A recommended organization chart for the integration of the two agencies follows.


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Note in the preceding organization chart that there are placeholders for future small groups of personnel

needed for risk management (primarily fire prevention), training, and maintenance. These tasks can, in the

short term, be performed by personnel on shift to the extent possible. However, the groups will eventually

need to be staffed long term within these cadres.

Detailed rationale is provided within this report for these two strategies.


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CURRENT CONDITIONS

Using organizational, operational, staffing, and geographic information system (GIS) models, this phase of the

study provides an analysis and recommendations for improvement in current services delivered to the

communities of the two respective agencies. The evaluation and analysis of data and other information are

based significantly on the internal data provided by the Aberdeen and Hoquiam Fire Departments, City and

County demographic information, and other external sources. The current conditions are compared to

industry best practices, National Fire Protection Association (NFPA) standards, Commission on Fire

Accreditation International (CFAI) self-assessment criteria, health and safety requirements, national mandates

relative to emergency services, and generally accepted best practices within the emergency services

community.3

Each section in the following report provides the reader with general information about that element as well

as observations and analysis of any significant issues or conditions. Observations are supported by site visit

validation of data provided by the aforementioned agencies to the extent practical. Finally, specific

recommendations are included to address identified issues or to take advantage of opportunities that may

exist.

Organizational Overview

The Region

The cities of Aberdeen and Hoquiam lie near the center of Grays Harbor County, Washington, which itself is

located on the southwest coastline of Washington State and is referred to as the “Gateway to the Pacific

Ocean and the Olympic Peninsula.” The county is sparsely populated at 73,901 as estimated by the U.S. Census

Bureau’s 2018 Population Estimates Program. According to the U.S. Census Bureau, the county has a total

area of 2,224 square miles, of which 1,902 square miles is land and 322 square miles (14%) is water. This

makes the county very rural at an average of 38 persons per square mile of land in the county. Population

centers typically cluster in and around the cities within the county. Aberdeen and Hoquiam together make up

a Micropolitan Statistical Area, defined by the Office of Management and Budget (OMB) as a labor market

area centered on an urban cluster (urban area) with a population of at least 10,000 but fewer than 50,000

people.4

Both cities belong to Greater Grays Harbor Inc., which serves as the Regional Chamber of Commerce and

Economic Development Council for the area. Both cities are inextricably tied to each other and to the larger

region economically. There are positive developments within the region for the economy as highlighted in the

following figure.

3 The CFAI organization is now a subsection of the Center for Public Safety Excellence (CPSE) but maintains its prime function of accrediting fire agencies.

4 OMB Bulletin 10-02.


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Figure 1: Greater Grays Harbor Inc. Economic Indicators, 2018 (data for 2017)5

Economic Indicator Aberdeen Hoquiam Region

Average Unemployment – – 7.1% (decrease of 1.1% over 2016)

Hotel/Motel Tax Revenue 31% increase 11% increase 8% increase overall

Median Home Price – – 12% increase (3rd year increase)

Retail Sales Taxes 6% increase 7% increase 7% increase overall

Aberdeen

Aberdeen sits at the convergence of the Wishkah and Chehalis Rivers where the latter empties into Grays

Harbor. Aberdeen’s western boundary is shared with Hoquiam’s eastern boundary. Tourism is an important

economic driver for the City. The topography within 2 miles of Aberdeen contains significant variations in

elevation, with a maximum elevation change of 584 feet and an average elevation above sea level of 84 feet.6

In Aberdeen, the summers are comfortable and partly cloudy and the winters are very cold, wet, and overcast.

Over the course of the year, the temperature typically varies from 37°F to 70°F and is rarely below 28°F or

above 79°F.

The City of Aberdeen has a population of approximately 16,482 according to the U.S. Census Bureau Quick

Facts: July 1, 2017, estimates. Also, according to this source, the median age of residents is 35.1 years of age.

The median income per household is $40,702, which is less than half the Washington State median of $84,594.

The high tech and industry located in the metropolitan area of Seattle tends to skew this number upward for

the rest of the state. However, 23.3 percent of the individuals living in Aberdeen are below the poverty level

(which is $24,339 for a family of four in Washington State). There are 976 companies located in Aberdeen. A

ready workforce exists within the city, with 85.7 percent of the residents having attained an education of high

school graduate or higher. The city is made up of 7,230 housing units.

Form of Government

There are six first class cities with mayor-council forms of government in the State of Washington, of which

Aberdeen is one. Citizens elect the Mayor and 12 Council members (two each from six wards with staggered

four-year terms). The Mayor appoints department heads, the Finance Director (who also serves as the ex

officio City Clerk), boards, and commissions subject to confirmation by the Council. The authority of the

elected officials is defined in City Charter Sec. 37, in the Aberdeen Municipal Code Ch. 2.20, and generally in

RCW 35.22.020. The City currently has a vacancy for City Administrator, who serves at the pleasure of the

Mayor.

5 Grays Harbor Economic Vitality Index, 2018, http://www.graysharbor.org. Retrieved May 4, 2019. 6 https://weatherspark.com/y/451/Average-Weather-in-Aberdeen-Washington-United-States-Year-Round. Retrieved May 4, 2019.

http://www.graysharbor.org/

https://weatherspark.com/y/451/Average-Weather-in-Aberdeen-Washington-United-States-Year-Round


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Aberdeen Fire Department

The Aberdeen Fire Department (AFD) is a fully career staffed agency serving the city limits for fire protection,

but also provides contracted advanced life support (ALS) services beyond its city limits. AFD has contracts for

ALS services with the City of Cosmopolis, Grays Harbor County Fire District #10 (Nisson, Wishkah, and

Aberdeen Gardens), Fire District #15 (Artic and Vesta), and the Stafford Creek Correctional Facility southwest

of Aberdeen on Highway 105. More information about these services is included in the EMS Support & System

Oversight section of this report. The organizational structure of the department is a typical fire service

hierarchy, as depicted in the following figure.

Figure 2: Aberdeen Fire Department Organization Chart

While the Fire Chief currently reports directly to the Mayor, the Fire Chief is included within the Aberdeen

Civil Service program and thus cannot be removed for other than cause pursuant to the civil service rules in

effect.7 Performance evaluations are expected to be conducted annually for the Fire Chief. The Fire Chief’s

authority is detailed in City Charter Sec. 17, and Aberdeen Municipal Code Ch. 2.44. Legal counsel is available

to the Fire Chief on personnel and other professional matters through the corporate counsel.

7 Aberdeen Municipal Code, Chapter 2.48.080.


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AFD has a full set of rules and regulations that are continuously reviewed and updated as necessary. Line staff

are able to provide suggestions for policy updates utilizing a policy update form. These are considered by the

administration for future updates. Once an update occurs, the new or modified rule or regulation is briefed

during training.

Position descriptions for all positions are in place and are maintained or updated as needed by the City of

Aberdeen Human Resources Department. They were last updated in 2015. All uniformed, represented

employees of the department are members of the International Association of Firefighters (IAFF) Local 2639.

These positions include Battalion Chief, Captain, Engineer, and Firefighter. The EMS Account Specialist is a

member of the American Federation of State, County and Municipal Employees (AFSCME) Local 275.

The Fire Chief of Aberdeen is also serving as the Interim Fire Chief for Hoquiam. He has assigned his Assistant

Chief to split the duties of managing both agencies while this study is under way to preserve the opportunity

to combine the organizations, if that is recommended, without complicating additional administrative

positions to accommodate. The largest span of control within the organization is one supervisor to five

subordinates. This is the headquarters station Captain who supervises an Engineer and four firefighters. This

is within normal limits of industry standards, which ranges from three to seven subordinates.

The AFD was initially a volunteer fire department that had its beginning in October 1890 with the consolidation

of the Pioneer and Wishkah Hose Companies and the Relief Hook and Ladder Company into the Aberdeen

Volunteer Fire Department. It ultimately formed in 1907 as a career fire department, and the history of the

department is unofficially maintained by retired Fire Chief Dave Carlberg.

The city service area encompasses 12.3 square miles, with a population of approximately 16,740. The city is

characterized as an urban cluster in an otherwise rural region. It is served by two staffed fire stations, housing

two front-line pumpers (one of which is a quint, which carries fire hose, ground ladders, has a fire pump, a

water tank, and an aerial device), a 100-foot aerial ladder truck, and four medic units (two of which are

routinely staffed). The department has no water craft or water tenders, given its well distributed water

system. The department is a Class 5 fire department according to the Washington Surveying and Rating

Bureau. This is discussed in greater detail in the Service Delivery & Performance section of this report.

Hoquiam

Hoquiam sits at the mouth of the Hoquiam River as it empties into Grays Harbor, and shares its eastern

boundary with the western boundary of Aberdeen. The topography within 2 miles of Hoquiam contains only

modest variations in elevation, with a maximum elevation change of 482 feet and an average elevation above

sea level of 72 feet.8 In Hoquiam, the summers are comfortable and partly cloudy and the winters are cold,

wet, and overcast. Over the course of the year, the temperature typically varies from 37°F to 69°F and is rarely

below 29°F or above 78°F.

8 https://weatherspark.com/y/442/Average-Weather-in-Hoquiam-Washington-United-States-Year-Round. Retrieved May 4, 2019.

https://weatherspark.com/y/442/Average-Weather-in-Hoquiam-Washington-United-States-Year-Round


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The City of Hoquiam has a population of approximately 8,560. The median age here is 44.4, slightly older than

Aberdeen’s median age. The median income per household is $40,301, which is on par with Aberdeen’s and

is also less than half of Washington State’s median income. Interestingly, 19.6 percent of the individuals living

in Hoquiam are below the poverty level, which is almost four percent lower than Aberdeen. Nonetheless, both

cities have a significant segment of their respective populations living below the statewide poverty level. There

are 675 companies operating in Hoquiam. Like Aberdeen, Hoquiam has a ready workforce, with 88.0 percent

of the residents having attained an education of high school graduate or higher. Hoquiam is made up of 4,264

housing units.

Form of Government

The City of Hoquiam is a non-charter code city, operating under the mayor-council form of government

pursuant to Chapter 35A.12 RCW of the Optional Municipal Code for the State of Washington. The Mayor

retains the ultimate authority and responsibility for the administrative operations of the City. The City Council

in Hoquiam represents six wards, with two seats representing each ward. The Council members serve four-

year terms and are staggered within the wards they serve, with one Council member with the same ward

expiring every two years. The Mayor also serves a four-year term, but is not tied to any ward. The City

Administrator is appointed by the Mayor and serves at the pleasure of the Mayor, acting as an administrative

officer on the Mayor’s behalf. The authority of the elected officials is defined in the Hoquiam City Code,

Chapters 1.02 and 1.08

Hoquiam Fire Department

The Hoquiam Fire Department (HFD) is a fully career staffed agency serving within the city limits for fire

protection, but also provides automatic aid to Grays Harbor County Fire District #6 (Grays Harbor City and

North Hoquiam), Fire District #7 (Ocean City and Copalis Beach), and Fire District #17 (Humptulips and Axford

Prairie). In addition, HFD provides mutual aid ALS upgrades to Fire Districts #16, #8, #4, and Taholah. Further,

it has a contractual relationship with Fire District #10. The organizational structure of the department is a

typical fire service hierarchy, as depicted in the following figure.


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Figure 3: Hoquiam Fire Department Organization Chart

The Fire Chief is exempt from participation in civil service as per chapter 1.40.050 of the Hoquiam Civil Service

Program for Police and Fire Departments, and is therefore an at will employee. The Fire Chief’s authority is

derived from the Hoquiam Municipal Code Ch 1.12 and the job description. The position is currently vacant

with the retirement of the previous Fire Chief. The City wisely held back from filling the position immediately,

opting instead to participate in this study to determine if there were efficiencies that could be gained by

bringing the two fire departments together. The position normally has a personal services contract, and

performance evaluations are expected to be conducted annually for the Fire Chief.

HFD has a full set of rules and regulations which is continually reviewed and modified as circumstances change.

Line staff are able to provide suggestions for policy updates by communicating to their supervisor. If a change

occurs, new and updated policies are provided to staff by attaching it to their paystub.

As with Aberdeen, HFD’s Fire Chief has access to the corporation counsel for advice and guidance on issues of

personnel or professional concern. All position descriptions are maintained by the Civil Service Examiner. They

were last reviewed and updated in 2009. All uniformed, represented employees are members of IAFF Local

315, which includes the positions of Captain, Engineer, Firefighter. The Aberdeen Fire Chief is the Interim Fire

Chief for Hoquiam through the life of this study. The AFD chief and his assistant chief split the duties of

managing both agencies. The largest span of control at HFD is one supervisor to four subordinates. This occurs

at the headquarters station, where the Captain supervises one Engineer and three firefighters. As mentioned

previously, this is within normal limits of industry standards, which ranges from three to seven subordinates.


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While the City of Hoquiam was incorporated May 21, 1890, it is unclear when the Hoquiam Fire Department

formed. A City ordinance cited the establishment of the Fire Chief’s powers and duties was passed in 1927,

which was the earliest reference found.9 It is not clear that the Hoquiam Fire Department maintains its history,

and therefore ESCI is unable to determine exactly when HFD was first formed.

The city service area encompasses 16.4 square miles, with a population of approximately 8,560. The city is

characterized as an urban cluster in an otherwise rural region. It is also served by two staffed fire stations,

housing two front-line pumpers, a 100-foot platform aerial ladder truck, and four medic units (two of which

are routinely staffed). Like Aberdeen, the department has no water craft or water tenders, given its well

distributed water system. The department is a Class 5 fire department according to the Washington Surveying

and Rating Bureau. This is discussed in greater detail in the Service Delivery & Performance section of this

report.

Response Comparison

The two agencies are very similar in their structure and service delivery systems, although there are

differences in how they operate. The following figure reflects the demand for service for both agencies.

Figure 4: Responses by Agency and by Type, 2017

Response Type AFD HFD

Fires 93 84

Rupture or explosion 1 1

EMS/rescue 4 1

Number of EMS (transports) 4,763 (2,686) (2,125)

Hazardous condition 52 6

Service call 85 30

Good intent call 89 11

False call 98 89

Other 33 948

Total 5,218 3,295

In addition to the responses handled by each agency within their own jurisdiction, the two agencies participate

in mutual and/or automatic aid responses to assist other agencies. The following figure illustrates that

additional workload.

9 Ord. 1216 § 15, 1927


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Figure 5: Mutual and/or Automatic Aid Responses, 2017

Agency Balance Automatic Aid Mutual Aid

AFD

Given Fire: 25 EMS: 0

Fire: 3 EMS: 19

Received Fire: 49 EMS: 0

Fire: 3 EMS: 9

HFD1 Given 460

Received 32

1HFD did not differentiate between auto or mutual aid, or by call type.

Mutual aid is defined as a response requested by or provided by another agency once they determine

additional resources are required from outside the host jurisdiction. Automatic aid is different in that the

additional resources are known or anticipated to be needed and are pre-assigned to be dispatched

simultaneously with the host agency resources. Mutual aid delays the arrival of assistance but reduces

“demand shifting” to other agencies. Automatic aid sends neighboring agency resources simultaneously with

host agency resources, eliminating the delay, but also places a burden upon the neighboring agencies. Careful

evaluation of what type of assistance to plan for is required. Further, balancing the work over the long haul to

keep any one agency from subsidizing another is an important consideration. Typically, both types of

assistance are considered an exchange of services and no financial remuneration is involved. If the balance is

expected to be significantly lopsided, the parties of either the mutual or automatic aid agreements are better

served with a contract for payment of these additional services.

Recommendations:

• An area of divergence between the two cities that must be addressed in any integration is the Fire

Chief’s status as an at-will employee (HFD) versus civil service protection (AFD).

• AFD and HFD should formally assign a department historian to maintain the history of the

departments.

• HFD should separate automatic aid from mutual aid in its annual response tallies, further separating

them into fire and EMS types.


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Management Components There are three core elements to any fire department (or organization for that matter); a mission statement,

a vision, and organizational values (or guiding principles). A mission statement expresses the core reason for

an agency’s existence. A vision statement expresses where the organization wants to go in the near-term

future. The values express how the members of the organization are going to treat each other on the journey

to achieve the vision. These three core elements are all contained in a strategic plan. Neither agency has a

strategic plan, however, they each have a mission statement, with AFD’s contained within its annual report

and HFD’s is posted in the front foyer of the fire station.

However, a strategic plan goes beyond creating a mission statement, vision, and values. It also focuses the

workforce on an organizational workplan, typically for a three- to five-year period. The workplan is complete

with strategic initiatives, goals and objectives, timelines, and assignments. The workplan is informed by

feedback from the community and from the internal stakeholders. ESCI recommends both agencies consider

conducting a strategic planning process.

Regulatory documents are also in place for both agencies. Rules, regulations, standard operating procedures

or guidelines, and department policies are all in place. Some are in various states of review and updating.

Neither agency performs a regular review for legal mandates, unless a high-profile issue evolves or new case

law warrants a specific analysis.

The Fire Chief has identified the top three critical issues facing each fire department. Not surprisingly, they

are identical. This may be in part due to the values and philosophy of the Fire Chief, who is serving as the

leader for both agencies. But is also likely that the issues are very similar if not identical, regardless of the

values or philosophy of the Fire Chief. The top three critical issues are listed in priority order in the following

figure.

Figure 6: Top Three Critical Issues Facing the Fire Department

Critical Issue

Aberdeen FD Hoquiam FD

1 Staffing—strive toward NFPA 1710 Compliance Staffing—strive toward NFPA 1710 Compliance

2 EMS—Criteria Based Dispatching (King Co. model) EMS—Criteria Based Dispatching (King Co. model)

3 Financial sustainability Financial sustainability

The two fire departments have similar internal communication approaches. Whereas AFD conducts quarterly

officer meetings to discuss emerging issues from the line perspective and from the administrative perspective,

HFD conducts its officer meetings monthly. The purpose is the same; the frequency is more robust in Hoquiam.

In both agencies, the attending officers are expected to take their own notes of salient points discussed at the

meeting and share the high points with their subordinates.


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Occasionally, memorandums or email are used by the administration to supplement the officer meetings.

However, no member newsletter or bulletin is published and member forums (all-hands meetings) are also

not used. An open-door practice is in place at both agencies as long as issues appropriate for the chain of

command are not used to circumvent that hierarchy. All personnel are clear as to their regular chain of

command and know how the communication flow works, as well as what information must follow that path.

Both agencies use a public safety committee made up of City Councilmembers, to keep communication

between the Council and the public safety agencies flowing.

Externally, neither department makes a concerted effort to communicate with the public on issues specifically

focused on the fire and EMS services, relying instead on the global communication the cities put forth. Both

departments have a website that is part of their respective global city website. These sites are not up to date

and offer less than robust content. This may be a function of an overloaded webmaster for the two cities, or

the lack of content being forwarded to the webmaster to refresh the webpages. In either event, relying on

the public to gain any significant information from the websites is unrealistic.

Both agencies have a formal complaint process, which is their City process. Further, public records requests

are centralized in both cities through their respective Finance Departments. Hard copy files are protected by

locked files in the administrative offices, with personnel files secured at City Hall for both cities. The electronic

records for both agencies are also backed up off site with a cloud backup. EMS and NFIRS reports are backed

up off site by the vendor of the software. Security at both agencies is similar with locks on the buildings,

computers password protected, and lockable vehicles either locked in the field or secured within the buildings.

The refrigerator with controlled medications stored inside is located within the Fire Chief’s secured office.

Assets are inventoried when acquired. If the asset has a value exceeding $500, the asset is placed on the list.

An annual inventory is intended to be conducted by policy, but does not routinely occur. New asset forms are

submitted to the City, but there is no follow-through by either City with conducting an annual inventory.

Monetary controls are similar and are in place at both agencies, most likely due to a shared Finance Director

position between the two cities. The processes in place to manage the funds are directed by policy, and the

Finance Director controls all purchases at Hoquiam. All regular testing is conducted, and testing records are

kept for the critical equipment for the two agencies as listed in the following figure.


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Figure 7: Critical Equipment Testing Intervals

Component Tested Aberdeen FD Hoquiam FD

Self-Contained Breathing Apparatus (SCBA)

Contracted annually Contracted every two years

Hose testing Internally conducted annually Internally conducted annually

Ladder testing Internally & contracted annually Contracted annually

Pump testing Contracted annually Contracted annually

Breathing Air testing Contracted quarterly Contracted quarterly

Gas Monitors Internally calibrated as needed Internally calibrated as needed

Recommendations:

• AFD and HFD should conduct and maintain strategic plans for their respective agencies.

• AFD and HFD should consider expanding their presence on the City website with more self-help links

for their constituents, as well as reporting on performance metrics regularly.

• HFD should re-commit to publishing an annual report to the City Council and community.

• HFD should secure the Fire Chief’s office, which currently stores the controlled medications.

Alternatively, a more secure location should be found to store the controlled medications.


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Capital Assets Critical to an agency’s success in accomplishing its mission are two primary capital assets—properly located

and designed facilities and apparatus (response vehicles) that are appropriate for serving the risks of the

community. This section of the report addresses these two key elements.

Facilities

Appropriately designed and maintained facilities are critical to a fire department’s ability to provide services

in a timely manner and with the appropriate resources. Fire stations need to be designed to adequately house

equipment and apparatus, as well as meet the needs of the organization, the community served, and the

personnel assigned to these stations. The following figures summarize ESCI’s non-engineering/non-

architectural review of facilities within the AFD-HFD study area.


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Figure 8: AFD Station 1

Address/Physical Location: 700 W Market St, Aberdeen, WA 98520

General Description:

AFD Station 1 is centrally located in Aberdeen and serves as the department’s headquarters station. Administrative and support staff are located in an 1,878 square foot building adjacent to the station. Four personnel staff an engine and an ALS transport medic unit (two-person engine and two-person ambulance, minimum staffing). The AFD Battalion Chief also responds from this facility. Station 1 marginally meets AFD’s current needs. The building is aging (55 years) and experiencing maintenance issues. The facility is at or near capacity for operational apparatus or personnel, office areas, and storage areas. Station 1 will require significant renovation/ remodeling or replacement to meet the future needs of the department.

Structure

Date of Construction/Type/Condition 1966 Type 2 Poor

Seismic Protection & Auxiliary Power Some retrofitting work done Propane station generator

Apparatus Bays 3 Drive-through bays 2 Back-in bays

Special considerations (ADA, etc.) Not ADA compliant; Breathing air compressor located here

Square Footage 11,884 square feet

Facilities Available

Maximum Station Staffing Capability 9 (maximum staffing 8 with addition of 1 medic student as scheduled) 1 bed in BC office, 8 beds in dorm

Exercise/Workout Facilities Exercise area and equipment located in engine bays

Kitchen/Living Area Adequate but dated kitchen and dayroom

Individual Lockers/Storage Assigned Individual lockers for turnouts in engine bays; Building is at capacity for storage in living areas and apparatus bays

Shower Facilities Restrooms and showers are adequate but dated

Training/Meeting Rooms Training room & office areas on first floor between engine bays

Washer/Dryer Yes; Personnel use for on-duty crews and extractor for PPE

Safety & Security

Sprinklers and/or Smoke Detection Not sprinkled; Residential smoke alarms in living areas

Decontamination/Biohazard Disposal Biohazard collection bins and disposal service

Security Combination door locks, video cameras

Apparatus Exhaust System Apparatus exhaust system in place (MagneGrip)


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Figure 9: AFD Station 2

Address/Physical Location: 700 W Curtis St., Aberdeen, WA 98520


AFD Station 2 is on the south side of Grays Harbor, in the South Aberdeen area. Three personnel cross-staff an engine and ALS transport medic unit. The station is located on a small lot on US Highway 101 (West Curtis Street). The facility is approximately 55 years old with significant structural and maintenance issues. There is no storage space in the apparatus bays and the bays are inadequate for modern fire apparatus. The living areas barely meet the needs of the current staffing. Additionally, the current sleeping area may not meet current life safety code (inadequate secondary egress). AFD should begin planning to replace this facility as soon as possible.

Structure

Date of Construction/Type/Condition 1966 Type 2 Poor

Seismic Protection & Auxiliary Power Some retrofitting Portable generator (manual)


Special considerations (ADA, etc.) Station is not ADA compliant nor mixed gender appropriate



Maximum Station Staffing Capability 3

Exercise/Workout Facilities Some exercise equipment available in the engine bays

Kitchen/Living area Very small kitchen-no separate dining area, small living area

Individual Lockers/Storage Assigned Storage for on-duty personnel is limited

Shower Facilities Single unisex restroom with a shower

Training/Meeting Rooms None

Washer/Dryer Washer/Dryer is available for on duty personnel

Safety & Security

Sprinklers and/or Smoke Detection Not sprinkled; Residential smoke alarms in living areas

Decontamination/Biohazard Disposal Biohazard collection bins and disposal service

Security Combination door locks, video cameras

Apparatus Exhaust System Apparatus exhaust system in place (MagneGrip)


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Figure 10: HFD Station 1

Address/Physical Location: 625 8th St, Hoquiam, WA 98550

General Description: HFD Station 1 is the fire department’s headquarter station. The station is located in downtown Hoquiam, south of Highway 101, and next to the Hoquiam city hall. Three personnel (minimum staffing) cross staff an engine and ALS ambulance. There are currently no administrative support personnel at this station. The building is nearly 40 years old but appears to be in good repair and well maintained. HFD Station 1 meets the current needs of the fire department and appears to have the capacity to meet the future needs of the department.

Structure

Date of Construction/Type/Condition HFD occupied, 1971 Masonry wall, wood trusses Good

Seismic Protection & Auxiliary Power Some retrofitting Diesel powered generator (automatic start)

Apparatus Bays 3 Drive-through bays 2 back-in bays

Special considerations (ADA, etc.) Public areas are not ADA compliant. Living areas have been adapted to be mixed gender appropriate. Breathing air compressor at this station.




Exercise/Workout Facilities Exercise area with equipment

Kitchen/Living Area Kitchen with dining area. Individual sleeping rooms with personal storage.

Individual Lockers/Storage Assigned Yes

Shower Facilities Locker room with large showers and restroom stalls

Training/Meeting Rooms Large training room that also serves as meeting room

Washer/Dryer Washer/Dryer for on duty crews. Extractor for turnouts

Safety & Security

Sprinklers and/or Smoke Detection Not sprinkled; Smoke detection in place

Decontamination/Biohazard Disposal Yes

Security Electric door locks with keypad

Apparatus Exhaust System Yes; Dated


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Figure 11: HFD Station 2

Address/Physical Location: 517 Ontario St, Hoquiam, WA 98550


HFD Station 2 is located east of the Hoquiam River in East Hoquiam. The station is well located to serve the eastern portion of Hoquiam. Two personnel (minimum staffing) cross staff an engine and an ALS ambulance. The living quarters are located immediately adjacent to the apparatus bays in a separate structure that was completed in 2015. The buildings are in good repair and appear well maintained. HFD Station 2 meets the current needs of the Hoquiam Fire Department. Additionally, the facility appears to have the capacity to meet future needs in the HFD service area.

Structure

Date of Construction/Type/Condition 5-B 2015 Good

Seismic Protection & Auxiliary Power None Natural gas generator (automatic start)


Special considerations (ADA, etc.) Not ADA compliant, but no public areas; Station is mixed gender appropriate

Square Footage 4,615



Exercise/Workout Facilities Exercise area and equipment located in apparatus bay

Kitchen/Living area Kitchen area with dining area and day room; Individual sleeping rooms with personal storage

Individual Lockers/Storage Assigned Yes

Shower Facilities Single unisex restroom with separate shower room

Training/Meeting Rooms Day room doubles as meeting area

Washer/Dryer Washer/Dryer for on-duty crews

Safety & Security

Sprinklers and/or Smoke Detection Not sprinkled. Smoke detectors

Decontamination/Biohazard Disposal Yes

Security Electric door locks with keypad

Apparatus Exhaust System Yes; dated

Facilities Discussion

AFD operates from older facilities that suffer from deferred maintenance, space limitations, and inadequate

storage. AFD Station 1 is essentially hard-pressed to meet the office, operating, and storage needs of the

department. AFD Station 2 is extremely limited, lacks a secondary means of emergency egress for the crew,

and is challenged to fit modern fire apparatus.


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HFD also operates an older station as its headquarters, however, it has benefitted from recent maintenance,

and meets the current needs of the organization, with some capacity to meet the future needs of the

department. HFD Station 2 is a newer building that meets the current and future needs of the department.

None of the four facilities in either agency appear to fully comply with ADA requirements. Neither jurisdiction

has a funded Capital Improvement Plan for facilities in place. Routine maintenance is handled by on-duty

personnel. Given the response workload of both jurisdictions, it can be challenging to keep up with the

required maintenance, especially for older facilities.

As noted in the previous figures, both AFD stations need significant repair and renovation to meet the future

needs of the organization. It can be argued, that both stations need significant work to meet the current

requirements of the department, especially AFD Station 2. HFD has been more successful maintaining their

stations. However, without financial support and continuing maintenance, HFD will experience similar issues

to those AFD currently faces.

Apparatus

AFD and HFD maintain a sizable fleet of response vehicles. The overall condition of both jurisdiction’s fleets

was found to be fair to good condition generally. An inventory of fire apparatus, configuration, and condition

is provided in the following figures.

Figure 12: AFD Station 1 Apparatus

Assigned Apparatus/Vehicles

Unit Year Type/Make Condition Pump Tank

BC 10 2014 Command – Dodge Ram 2500 Crew Cab Good N/A N/A

Engine 10 1994 50’ Quint – Pierce Dash Fair 1500 500

Engine 14 2001 CAFS Engine – Pierce Dash Good 1500 500

Ladder 10 2001 100’ Aerial – Pierce Dash Good 1500 400

Medic 10 2013 ALS Ambulance – Braun Good N/A N/A



Figure 13: AFD Station 2 Apparatus



Engine 12 1994 Type 1 Engine – Pierce Dash Good 1500 750



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Figure 14: HFD Station 1 Apparatus



Engine 1 1996 Type 1 Engine – Pierce Dash Fair 1500 750

Engine 3 1989 Type 1 Engine – Pierce Arrow Poor 1500 750

Ladder 1 2013 100’ Aerial platform – Pierce Dash Good 2000 380

Medic 1 2017 ALS Ambulance – Braun New N/A N/A

Medic 3 2016

Chassis ALS Ambulance – Road Rescue (1998 Box) Good N/A N/A

Medic 4 2007 ALS Ambulance – Braun Fair N/A N/A

Rescue 1 1993

Chassis Rescue/Utility – Chevrolet (1983 Box) Poor N/A N/A

Command 1 2007 Command vehicle – Ford Explorer Good N/A N/A

Figure 15: HFD Station 2 Apparatus



Engine 2 2002 Type 1 Engine – Pierce Enforcer Good 1500 550


F 2 2001 Foam Tender – International 470 Fair N/A N/A

A 5 2002 BLS Ambulance – Road Rescue Fair N/A N/A

Apparatus Discussion

In general, ESCI observed both the AFD and HFD vehicles to be well maintained and serviceable. As with the

facilities, routine maintenance and upkeep are handled by on-duty crews. Neither jurisdiction maintains a

shop facility nor employs an emergency vehicle technician (EVT) certified mechanic. Safety work or heavy

repair work is handled by regional fire equipment dealer mechanics or local heavy equipment mechanics. HFD

uses a City Mechanic for some maintenance work. AFD maintains an apparatus replacement plan for EMS

vehicles. HFD does not have an apparatus replacement plan in place for fire apparatus or EMS vehicles. ESCI

notes that except for HFD Engine 2, the first out engines of both jurisdictions are approaching 25 years of

service. AFD and HFD will need to consider replacing these engines soon.

NFPA 1901, 1911, and 1912 are applicable standards for the purchase, refurbishment, maintenance, and

retirement of fire apparatus. ESCI supports Annex D of these standards as they relate to replacement

schedules for heavy fire apparatus (engines, tankers, and ladder trucks). Generally, the annex recommends a

maximum of fifteen years of frontline service, followed by a maximum of ten years in reserve status, followed

by surplussing the unit from service. However, usage can have a significant effect on the resource role during

its life expectancy, as is the case in both agencies. Thus, the following figure should be a useful guide for the

departments, providing a formulaic approach to apparatus replacement.


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Figure 16: Apparatus Replacement Criteria

Evaluation Components Points Assignment Criteria

Age One point for every year of chronological age, based on in-service date.

Miles/Hours One point for each 10,000 miles or 1,000 hours.

Service 1, 3, or 5 points are assigned based on type of service unit receives. (Example: fire pumpers are given a five because it is classified as severe duty service.)

Condition This category takes into consideration body condition, rust interior condition, accident history, anticipated repairs, etc. The better the condition the lower the points assignment.

Reliability

Points are assigned as 1, 3, or 5 depending on the frequency that a vehicle is in the shop for repair. (Example: a 5 is assigned to a vehicle in the shop two or more times per month on average, while a 1 is assigned to a vehicle in the shop an average of once every three months or less.)

Point Ranges Condition Rating Condition Description

Under 18 points Condition I Excellent

18 to 22 points Condition II Good

23–27 points Condition III Consider Replacement

28 points or higher Condition IV Immediate Replacement


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Apparatus Staffing

The third critical component to an emergency response system, while not capital oriented, are the personnel

assigned to operate the apparatus. The following two figures list the minimum staffing assignments for reach

of the apparatus listed and any unique circumstances that crews adhere to during operation. The staffing is

discussed in greater detail in the Staffing & Personnel Management section of this report.

Figure 17: AFD Staffing Configuration

Apparatus Call Sign Minimum Staffing Comments

AFD Station 1 Apparatus Staffing

Battalion Chief 10 1 Additional staff and support vehicles stored outside

Engine 10 2 First out staffed engine

Engine 14 0 Reserve engine

Ladder 10 0 Cross-staffed as needed with E-10 crew

Medic 10 2 First-out staffed medic (ALS/BLS transport ambulance)

Medic 14, Medic 16 0 Cross-staffed with Engine 10 crew as needed for back-up EMS calls. Also used for out of town transports.


AFD Station 2 Apparatus Staffing

Engine 12 3 Cross-staffed for fire responses

Medic 12 3 Generally, 2 on M-12 and 1 on E-12 for EMS responses

Figure 18: HFD Staffing Configuration


HFD Station 1 Apparatus Staffing

Engine 1

Minimum staffing at HFD Station 1 is three. All apparatus are cross-staffed by these three personnel.

Cross-staffed first out engine

Medic 1 Cross-staffed first out ambulance (ALS)

Medic 3 Second out ambulance

Medic 4 Out of town transfer ambulance

Command 1 Command vehicle staffed by the Headquarters Captain who acts as the HFD command officer

Ladder 1 Cross-staffed by on-duty crew as needed


HFD Station 2 Apparatus Staffing

Engine 2 2 Cross-staffed first out engine

Medic 2 2 Cross-staffed first out ambulance (ALS)

Foam Tender 2 1 Specialty apparatus; staffed as needed

Ambulance 5 0 Reserve ambulance


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Staffing & Personnel Management Many emergency services organizations consider their employees as their most valuable asset. Managing

personnel to achieve maximum efficiency, professionalism, and personal satisfaction is an art as much as

science. Consistency, fairness, safety, and opportunities for personal and professional growth are key values

in a healthy management culture. These values are even more important when the organization relies on the

participation and support of a “volunteer” workforce. Volunteer personnel may leave if they do not feel valued

and/or experience personal satisfaction from their participation.

Several national organizations recommend standards to address staffing issues. The Occupational Health &

Safety Administration (OSHA) Respiratory Protection Standard, and the National Fire Protection Association

(NFPA) Standard 1710 or 1720 (whichever is applicable), are frequently cited as authoritative documents.10 In

addition, the Center for Public Safety Excellence (CPSE) publishes benchmarks for the number of personnel

recommended on the emergency scene for various levels of risk.

An appropriate balance of administration and support staff, compared to operational resources and service

levels, is an important consideration to achieving organizational success. It is important to remember that key

administrative and logistical support positions are critical in maintaining an efficient and effective fire

department. With that said, comparing these positions between the two departments may reveal

opportunities for sharing and/or combining positions to improve overall efficiency.

Personnel Policies & Processes

The departments were surveyed to determine the administrative components used in managing their

employees. Both departments have contemporary personnel policy manuals, provide orientation training on

these policies to new employees, and archive copies of outdated policies. The departments maintain and

securely archive personnel records, including injury and accident reports and medical/exposure records.

Personnel records, including discipline, medical, and City administrative records are maintained within their

Human Resource and Legal Departments.

Ensuring the health and safety of employees should be a high priority in any business or government

organization. Many fire service organizations offer proactive health wellness programs designed to promote

and support healthy lifestyles in an attempt to ward off illness and injury. Many of these programs also support

mental health wellness, which is even more important for those working in emergency services. The following

figure summarizes health, safety, and counseling services:

10 Respiratory Protection Standard 29 CFR 1910.134; Occupational Health & Safety Administration; NFPA 1720: Standard for the

Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Volunteer Fire Departments; NFPA.


31

Figure 19: Health, Safety & Counseling Services

Health & Safety AFD HFD

Medical standards established Yes Yes

Medical exam frequency None None

Safety Committee established Yes Yes

Critical Incident Stress Debriefing Yes, Countywide Team Yes, Countywide Team

Employee Assistance Program Yes Yes

Confirming that firefighters are medically fit to meet the strenuous duties associated with emergency

response and fireground tasks is paramount. In addition, state and federal law mandates respiratory medical

assessment, clearance and fit testing for anyone required to wear a respirator. CFR 1910.134(e)(1) requires

employees obtain a medical clearance from a physician or other licensed health care professional before they

can wear a respirator (including N95, N100, P100, and HEPA respirators), and must be annually fit-tested.

Firefighter Hiring and Selection Processes

Recruiting, selecting, and retaining firefighters takes considerable investment of time, effort, and money to

ensure high quality employees work in the organization. While becoming a firefighter is one of the most

sought-after careers in the nation, selecting the best candidates that fit within the department and its culture

requires deliberate and comprehensive evaluation. The following figure summarizes the hiring process

components used by each department:

Figure 20: Hiring Process Components

Hiring Process AFD HFD

Recruitment Program No No

Qualifications check Yes Yes

Reference check Yes Yes

Background check Yes Yes

Physical agility standards established CPAT CPAT

Knowledge testing Yes Yes

Interview Yes Yes

Medical exam required Yes Yes

Psychological exam required Yes No


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Previously, prospective candidates in both departments were required to have Firefighter I and Washington

State EMT-Basic or EMT-Paramedic certifications to participate in the civil service testing process. Applicants

were screened and tested through a third-party testing company—Public Safety Testing® (PST)— who

administered a written examination and the Candidate Physical Agility Test® (PAT). However, as a result of an

inability to attract enough candidates who meet these requirements, along with an apparent lack of adequate

screening of the pre-qualification requirements by PST, which resulted in disqualifications once a candidate

was referred to the departments, the Firefighter I certification requirement has been eliminated in both

departments, and the contract with PST has been cancelled by AFD. HFD will most likely cancel its contract by

the end of 2019. The requirement for current EMT or paramedic certification remains in place in both

departments.

Planning is underway to develop a new local testing process between the two departments and Grays County

Fire Protection District 2 (GFPD2). An outside company, International Public Management for Human

Resources®, has been retained to create two validated written firefighter examinations that will be locally

proctored. The written score will count as 40 percent of an applicant’s overall score. The physical agility test

will not be administered. Instead, candidates must possess a current (within the last 6 months) CPAT card to

participate in the testing process. Firefighter candidates will then participate in an oral interview with a panel

of operations personnel. Firefighter Paramedic candidates will participate in an oral interview/medical

knowledge assessment interview with paramedics from the respective departments. These interviews count

towards 60 percent of an applicant’s overall score.

Once candidates successfully complete the written and oral interview assessment process, the names of the

ranked candidates are forwarded to the respective Civil Service Commissions for placement on a Civil Service

hiring register that is typically valid for one year. When a vacancy occurs in either department, the top five

names are forwarded to the departments for further assessment. This assessment consists of a Chief’s

interview and background/reference checks. Upon acceptance of a conditional hiring offer, the candidate

must successfully complete the following:

• Comprehensive medical examination

• Drug test

• Background check/Medicare-Medicaid record check

• Motor vehicle record check

• Psychological assessment


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Hiring Process Discussion

The use of PST or National Testing Network® (NTN) in managing and administering new employee screening

and testing is an attractive option for many Puget Sound departments, as it reduces the amount of staff time

and resources necessary for initial testing, and reduces potential perception of local bias. The service is also

attractive for applicants, as their application and test results can be accessed by any or all of the participating

departments, depending on the departments initially selected by the applicant. However, AFD and HFD

suspect the Firefighter I requirement, along with the requirement for applicants to travel to the PST testing

location, may be a barrier in attracting candidates to apply.

Over the past few years, the hiring practices in fire departments across the country have been challenged by

allegations of bias and discrimination. For example, the New York City Fire Department’s and Los Angeles Fire

Department’s new hire testing practices were questioned, resulting in the suspension of the hiring process

and revocation of some conditional job offers. Outside experts were brought in to analyze historical hiring

outcomes, current hiring administrative procedures, and make recommendations for improvement.11 As a

result, significant changes were made, at great expense to ensure a fair and impartial hiring process.

AFD and HFD, along with other departments that participate in creating a new entry level hiring testing

process, must make every effort to ensure the process is consistent with contemporary fire service testing

practices that ensure consistency, applicability to the firefighter job description, inclusiveness, and most

importantly—impartiality. The recent modifications to the previous hiring process appear to be consistent

with current and valid hiring practices. However, it remains to be seen if these modifications will result in an

increase in the number of interested and qualified candidates for both departments.

Medical Assessment Discussion

An NFPA report released in 2016 revealed that sudden cardiac deaths (SCD) account for roughly 40–50 percent

of annual duty-related fatalities in the fire service.12 In 2010, the National Institute for Occupational Safety

and Health (NISOH) conducted a study of the prevalence of cancer in 30,000 firefighters.13 The study

concluded firefighters have a 14 percent greater risk of contracting cancer compared to the general

population. Lastly, NFPA 1582: Standard on Comprehensive Occupational Medical Program for Fire

Departments, defines the necessary components of an occupational medical program to ensure the safety

and health of firefighters.14

11 Recommendations for Improving the Recruiting and Hiring of Los Angeles Firefighters, Rand Corporation, 2015, https://www.rand.org/content/dam/rand/pubs/research_reports/RR600/RR687/RAND_RR687.pdf.

12 Fahy RF, LeBlanc PR, Molis JL. Firefighter fatalities in the United States—2016. National Fire Protection Association: Quincy, Mass., 2017.

13 Findings from a study of cancer among U.S. Firefighters, National Institute of Occupational Safety & Health, July 2016. https://www.cdc.gov/niosh/pgms/worknotify/pdfs/ff-cancer-factsheet-final.pdf.

14 NFPA 1582 Standard on Comprehensive Occupational Medical Program for Fire Departments; NFPA.

https://www.rand.org/content/dam/rand/pubs/research_reports/RR600/RR687/RAND_RR687.pdf

https://www.cdc.gov/niosh/pgms/worknotify/pdfs/ff-cancer-factsheet-final.pdf


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Ensuring employees are medically cleared to perform rigorous fireground tasks, along with identifying any

pre-existing medical condition which may place an employee in jeopardy, is an important screening

component in the hiring process and beyond. While both departments have established medical standards,

and require a comprehensive medical examination after being conditionally hired, neither require periodic

medical examinations to determine fitness for duty.

Recommendations:

• Require annual fit for duty physical examinations for all operations employees.

• Adopt comprehensive screening parameters that evaluate cardiovascular health, cancer screening,

behavioral health, and musculoskeletal fitness.

Union Agreements

Operations personnel from each department are represented by International Association of Firefighters

(IAFF) local bargaining units; Aberdeen Local 2639, and Hoquiam Local 315. Both locals are within the

jurisdiction of IAFF District 7. Aberdeen’s collective bargaining agreement (CBA) expires at the end of 2020,

and Hoquiam’s expires at the end of 2019. Non-uniformed administrative employees are represented by Local

275 of the American Federation of State, County, and Municipal Employees (AFSCME). This CBA expires at the

end of 2019.

Union Agreement Discussion

The success of any type of consolidation of the two departments will hinge in large part on Union participation,

compromise, and agreement. The variation in work schedules, benefits, and other conditions currently

outlined in the bargaining unit agreements of the two local union affiliates will need to be carefully addressed

and homogenized for an effective and efficient consolidation. This can take the form of one affiliate absorbing

the membership and obligations of other affiliates, commonly called a “merger,” or by legally dissolving the

current IAFF affiliates, and forming an entirely new bargaining unit, commonly called an “amalgamation.”

Merger or amalgamation of local union affiliates is encouraged by the IAFF where it makes sense. In 2012, the

IAFF Legal Department published a manual to guide union leaders in merger/amalgamation efforts. The

manual reviews the applicable sections in the IAFF Constitution and Bylaws, and defines the reporting

requirements, legal requirements, and specific duties of merged and amalgamated affiliates. In the manual

they state:

The Executive Board recommends that when the consolidation, unification, or merger of two or more

counties, cities, or townships is anticipated, all locals involved should merge as soon as possible. If a

merger of locals is not immediately possible, a joint committee should be established to work with the

department administration to negotiate the benefits for all members. Every effort should be made to

conclude the bargaining prior to the merger.


35

Given the number of significant labor implications related to an identified new consolidated fire agency,

including internal union governance issues, the involved local affiliates would likely benefit from the

participation of the IAFF District Vice President and other legal resources available through the IAFF national

organization. Also, given the complexity and variation of wages and benefits between the affiliates, if

consolidation is actively pursued, they should engage in internal union planning as soon as practical to reach

agreement on how the affiliates would be organized in the new fire agency organization.

Administrative Support Staffing

The two departments have very limited administrative support staff. An exempt Administrative Coordinator

and an EMS Account Specialist support AFD, and a part-time EMS Billing Clerk supports HFD.

The departments rely on other City departments for administrative support services—Information Technology

and Human Resource services for example. The following figure illustrates the various positions in the

uniformed and non-uniformed administrative positions.

Figure 21: Administrative & Support Uniformed Staff Positions

Staff Positions AFD HFD

Fire Chief 1 1 (vacant)

Assistant Chiefs 1 1 (vacant)

Total Uniformed Administrative/Staff positions 2 0

The previously vacant HFD Assistant Chief position, along with the recent retirement of the HFD Fire Chief,

resulted in a contract for service arrangement with AFD for the provision of administrative services. The AFD

Fire Chief and Assistant Chief are currently providing administrative services to HFD until a final decision is

made on the future direction of the organizations as determined by this study. ESCI notes that administrative

support for fire prevention is the responsibility of the Assistant Chief in each department. Currently, the AFD

Assistant Chief is performing fire prevention activities in both departments. Training administration and

support in each department is assigned to operations personnel—an Aberdeen line Battalion Chief, and a

Hoquiam Fire Captain—who receive additional pay and/or compensatory time for these additional duties.

Administrative Staffing Discussion

Analyzing the ratio of administrative and support positions to the total operational positions of the

department facilitates an understanding of the relative number of resources committed to this important

function. The level of administrative uniformed staff support between the two departments is very low,

especially in HFD. ESCI recognizes and understands the decision to not fill the two vacant chief positions in

HFD, pending the recommendations and outcomes of this study, and also recognizes that this is not

sustainable long term, due to the lack of “bench depth”—an absence of functional redundancies that can

result in the crippling of normal operations if an administrative employee becomes unavailable for work for

an extended period of time. Also, the limited number of chief officers results in them working at maximum

capacity, resulting in myopic focus on short-term tasks, and ultimately diminished ability to strategize and/or

perform long-term planning. Compounding this problem for the respective administrations is their role in

also responding to emergency incidents while performing their regular administrative duties.


36

ESCI also noted that the City of Aberdeen has a vacant Finance Director position. As a result, the City is

contracting with the City of Hoquiam for Finance Director services. ESCI acknowledges the extraordinary

efforts and collaboration between the two cities in maintaining administrative support within their

organizations. However, specific to the HFD, ESCI believes the current staffing configuration is unsustainable

on a long-term basis.

While the staffing shortages noted are concerning, ESCI also notes that the sharing of fire department and

other City department administrative staff in meeting current staffing challenges is a strong indicator of a

willingness to work together to solve resource allocation issues and assist each other in serving their

neighboring jurisdictions. This commitment to community service will hopefully extend to enabling

sustainable further operational fire service collaboration.

Recommendations:

• Leave current/planned administrative uniformed personnel vacancies unfilled until subsequent

consolidation planning/implementation strategies are agreed upon.

• If administrative consolidation is not implemented, the vacant Fire Chief and Assistant Chief positions

should be immediately filled.

• If administrative consolidation is implemented, consideration should be given to increasing

administrative support in the following areas; Training and Fire Prevention.

Emergency Operations Staffing

Next, we evaluated the type and number of operations staff positions. The following figure summarizes the

number of operations positions in each department.

Figure 22: Operations Staff Positions

Operations Positions AFD HFD

Battalion Chiefs 3 N/A

Captains 6 6

Driver Operator/EMT-IV 3 2

Driver Operator/Paramedic 3 4

Firefighters-EMT 2 3

Firefighters-EMT-IV 2 0

Firefighters/Paramedic 14 6

Total Operations Positions 33 21

% of operations officers to firefighters 27% 28%


37

ESCI also calculated the theoretical total number of full-time employees required to meet the various average

leave hours used by employees in 2017 in each department, and compared the results to the current number

of operations employees assigned to 24-hour staffed units. This calculation compared the average available

scheduled weekly work hours per employee, subtracted the average various leave types—based on 2017

historical leave use data—and calculated sick and vacation relief factors. ESCI then multiplied the number of

personnel needed to cover a single position at 24-hours per day with the relief factor to determine the total

number of employees required to meet daily minimum staffing, without taking into account the use of

volunteers or part-time employees to backfill vacancies. The following figure summarizes the results of these

calculations:

Figure 23: Theoretical Relief Factor Calculation (2017)

Relief Factor AFD HFD

Sick Leave 1.27 1.23

Vacation Leave 1.24 1.24

Total Relief Factor:1 1.46 1.47 1Includes holiday leave, personal leave, FMLA, bereavement, short-term disability, military leaves, etc.

The total leave factors were multiplied by the number of personnel needed to cover one 24-hour position.

The following figure compares the theoretical number of positions needed with the current number of

employees assigned to the work schedules.

Figure 24: Calculated Operational Staff Shortage/Overage

Agency Positions Required

24/7 Total Number of Operations FTEs

Theoretical Number of FTEs

Shortage/Overage

AFD 8 33 34 -7

HFD 5 21 24 -3

Total: 13 54 58 -10

Emergency Operations Staffing Discussion

As shown in the preceding figure, each department is theoretically “short-staffed” as it relates to the total

number of personnel needed to cover scheduled and unscheduled leaves. Reconciling the results of this

staffing resource analysis with current staffing levels and resource allocation strategies between the two

departments should be approached carefully. In ESCI’s experience, theoretical analysis does not necessarily

take into account an organization’s inherent flexibility and resources that can be potentially leveraged to

reduce workload and personnel costs—nor does it take into account the ongoing costs of providing the various

benefits to full-time employees. Full-time employee benefit expenses must be considered when analyzing the

cost of adding full-time employees versus using overtime or part-time employees who do not receive benefits.

With that said, given the overall limited number of employees, consideration should be given to increasing

the number of firefighters to reduce overtime usage and mandatory hold-overs.


38

Recommendations:

• Hire additional firefighters to reduce overall overtime usage.

• Assign these “extra” firefighters to each shift to backfill for scheduled and unscheduled leave.

• If there is no leave relief required on any given shift, consider assigning these firefighters to staff an

additional EMS response unit to reduce overall workload.

ESCI understands that four AFD firefighter paramedics recently resigned to take positions in other fire

departments. This will significantly increase overtime expense and workload on the remaining limited pool of

AFD firefighters until replacements are hired and trained.

Effective Response Force Analysis

In addition to reviewing the total number of operations staff available to each department, ESCI also reviewed

daily staffing levels in each department, and compared them to national consensus standards related to

providing sufficient personnel and resources to quickly mitigate emergency incidents—specifically, structure

fires and critical EMS situations. Given there is a comparatively large number of paramedics between the two

departments, including medics who provide MFR, we are focusing on each department’s ability to marshal an

Effective Response Force (EFR) to mitigate structure fires or other complex and dynamic emergencies. ESCI

noted that AFD has a “proximity residence” requirement, which stipulates that AFD firefighters must reside

within 60 minutes of the headquarters fire station. However, HFD does not have a similar requirement. This

requirement is intended to ensure timely backfill of stations and assignment of additional personnel to large

scale emergencies.

Critical Task Analysis

Tasks that must be performed at a fire can be broken down into two key components, life safety and fire

flow. Life safety tasks are based on the number of building occupants, and their location, status, and ability

to take self-preservation action. Life safety related tasks involve the search, rescue, and evacuation of

victims. The fire flow component involves delivering sufficient water to extinguish the fire and create an

environment within the building that allows entry by firefighters.

The number and types of tasks needing simultaneous action will dictate the minimum number of firefighters

required to combat different types of fires. In the absence of adequate personnel to perform concurrent

action, the command officer must prioritize the tasks and complete some in chronological order. These tasks

include command, scene safety, search and rescue, fire attack, water supply, pump operation, ventilation,

and back-up/rapid intervention.

An initial full alarm assignment should provide for the following:15

15 NFPA 1710: Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, to the Public by Career Fire Departments; National Fire Protection Association.


39

• Establishment of incident command outside of the hazard area for the overall coordination and

direction of the initial full alarm assignment. A minimum of one individual shall be dedicated to this

task.

• Establishment of an uninterrupted water supply of a minimum 400 GPM for 30 minutes. Supply line(s)

shall be maintained by an operator who shall ensure uninterrupted water flow application.

• Establishment of an effective water flow application rate of 300 GPM from two handlines, each of

which shall have a minimum of 100 GPM. Each attack and backup line shall be operated by a minimum

of two individuals to effectively and safely maintain the line.

• Provision of one support person for each attack and backup line deployed to provide hydrant hookup

and to assist in line lays, utility control, and forcible entry.

• A minimum of one victim search and rescue team shall be part of the initial full alarm assignment.

Each search and rescue team shall consist of a minimum of two individuals.

• A minimum of one ventilation team shall be part of the initial full alarm assignment. Each ventilation

team shall consist of a minimum of two individuals.

• If an aerial device is used in operations, one person shall function as an aerial operator who shall

maintain primary control of the aerial device at all times.

• Establishment of an IRIC (Initial Rapid Intervention Company, Rapid Intervention Team) that shall

consist of a minimum of two properly equipped and trained individuals.

The Commission on Fire Accreditation International (CFAI) provides a sample critical tasking analysis for

the number of emergency workers required for various levels of risk.18 That analysis is summarized in the

following figure:


40

Figure 25: Sample Critical Task Staffing Need Based on Level of Risk

Critical Task Maximum

Risk High Risk

Moderate Risk

Low Risk

Attack line 4 4 4 2

Search and rescue 4 2 2

Ventilation 4 2 2

Backup line/rapid intervention2 4 3 2 2

Pump operator 1 2 1 1

Water supply 1 1 1

Utilities support 1 1 1

Command/safety3 2 2 2 1

Forcible entry1

Salvage1

Overhaul 1

Communication 1

Chief’s aide 1 1

Operations section chief 1 1

Logistics 1

Planning 1

Staging1 1

Rehabilitation 1 1

Division/group supervisors1 2

High-rise evacuation1 10

Stairwell support1 10

Total Required 51 20 15 4 to 6 1 At maximum and high-risk fires, additional personnel may be needed for these tasks.

2 Backup line may not be required for certain incidents. 3 Can often be handled by the first due officer.

Delivering enough personnel to the scene to accomplish all the various tasks required to mitigate an

emergency is essential, and many of these tasks must be completed quickly. However, it should be noted

not all of the tasks listed need to be completed simultaneously. Typically, structure fires are the most labor-

intensive incidents. As is shown in the preceding figure (Figure 25), national criteria recommend at least

15 personnel be on scene of a fire in a single-family home for safe and effective operations. Even more

personnel may be required as dictated by the size of the building, incident complexity, and/or special

hazards are encountered.

The fire service assesses the relative risk of properties and occurrences based on a number of factors.

Properties with high fire risk often require greater numbers of personnel and apparatus to effectively

mitigate the fire emergency. Staffing and deployment decisions should be made with consideration of the

level of risk involved.


41

The level of risk categories used by CFAI relate as follows:

• Low Risk—Areas and properties used for agricultural purposes, open space, low-density residential,

and other low intensity uses.

• Moderate Risk—Areas and properties used for medium density single family residences, small

commercial and office uses, low intensity retail sales, and equivalently sized business activities.

• High Risk—Higher density business districts and structures, mixed use areas, high density residential,

industrial, warehousing, and large mercantile structures.

Effective Response Force Discussion

Each department’s minimal daily staffing resources, as noted in Figure 24, was compared to the NFPA and

CFAI criteria previously noted. Not surprisingly, this comparison shows neither department alone, nor

combined, is currently able to independently meet the staffing standard for up to a moderate risk incident. It

must also be noted that this comparison assumes all on-duty personnel and response units are available to

respond to the incident in any one department, and does not consider off-duty response backfill. Concurrent

calls can severely impact either department’s ability to safely and effectively mitigate a moderate to high risk

incident.

ESCI understands that when a structure fire in either department’s jurisdiction occurs, the two department

staffed stations in the jurisdiction where the fire is reported are dispatched, along with one engine from the

other department. However, this initial deployment is well below what has been identified as necessary to

mitigate anything more than a low risk incident. Compounding this problem is the inability to dispatch the

remaining engine to the fire, as it must remain available for emergency response for concurrent emergencies

in both jurisdictions.

Wages & Benefits

Depending on the depth and breadth of future consolidation efforts, the wages and benefits paid to the

employees of the two departments will need to be taken into consideration. ESCI analyzed the average wages

of the various administrative and operational positions between the departments, and the various benefit

packages to identify significant similarities and differences that would need to be incorporated into future

consolidation planning efforts.

In evaluating the salary tables provided by each department and/or listed in the two bargaining unit

agreements, ESCI noted similarities in position titles, and significant variation in associated pays between the

departments. The following figure lists the pay classifications by operational position in each department

which reflects similar positions except for Battalion Chief.


42

Figure 26: Operations Pay Classifications By Department

Career Operations Positions AFD HFD

Battalion Chief X N/A

Fire Captain/EMT-IV X X

Fire Captain/Paramedic X X

Driver Operator/EMT-IV X X

Driver Operator/Paramedic X X

Firefighter/EMT X X

Firefighter/EMT-IV X X

Firefighter/Paramedic X X

The salary data submitted from the two departments revealed significant variations in pay among the various

positions. The following figure summarizes the top-step salary comparisons between the two departments

for the basic full-time uniformed positions:

Figure 27: Uniformed Staff 2018 Average Salary Comparisons

Positions AFD HFD Percent

Difference1

Fire Chief $113,196 $111,516 1.5%

Assistant Chief $110,700 $98,208 12%

Battalion Chief (Operations) $107,760 N/A N/A

Fire Captain/EMT-IV $86,520 $75,472 14%

Fire Captain/Paramedic $93,300 $81,391 14%

Driver Operator/EMT-IV $78,660 $67,504 15%

Driver Operator/Paramedic $84,828 $72,798 15%

Firefighter/EMT $73,447 $66,480 10%

Firefighter/EMT-IV $74,916 $67,504 10%

Firefighter/Paramedic $80,796 $72,798 10%

1Percentages rounded.

In both departments, firefighters with paramedic certification receive a 10 percent above base pay premium

pay. None of the operations position salaries listed above include regularly scheduled FLSA overtime pay, as

the work schedule and job duties qualify for the FLSA 7K exemption. The pay disparity is greatest at the Fire

Captain/Paramedic and Driver Operator/Paramedic positions. With the exception of the Fire Chief pay, the

pay disparity in the remaining positions is significant. Neither department has longevity pay. However, both

departments provide additional vacation shifts based on years of service.

Next, we analyzed the various benefits provided by each department, which is summarized in the following

figure:


43

Figure 28: Uniformed Employee Benefits

Benefits Provided AFD HFD

Uniform Allowance $140/yr. $350/yr.

Educational Incentives No Yes

Social Security No No

Workers Compensation Yes Yes

Pension (LEOFF II) Yes Yes

Deferred Compensation/Match? Yes/Yes Yes/No

Medical Yes Yes

Dental Yes Yes

Short-term Disability No No

Vision Yes Yes

Life Insurance Yes Yes

Analysis of the benefits packages between the departments revealed significant similarities, with all providing

comprehensive medical, dental, vision, and life insurance packages. Neither department offers additional life

insurance. There is significant variation in the uniform allowance pay. Educational incentive pay is included at

HFD. All full-time firefighters are enrolled in the Washington State Law Enforcement and Firefighters (LEOFF)

Plan 2 Retirement System. Administrative non-uniformed personnel are enrolled in the Washington State

Public Employees Retirement System II (PERS II).

Salary & Benefits Discussion

The pay disparity between the departments for each of the operations positions is significant, with Hoquiam

trailing in pay by over 10 percent in each position. In the planning and negotiation process resulting from an

operational consolidation between departments, the operational impacts will need to be negotiated with the

bargaining unit(s). The Washington State Public Employees Relations Commission (PERC) oversees collective

bargaining between public agencies and employees, and assists in the resolution of contract disputes between

the parties, including administering the Binding Interest Arbitration (BIA) process. Salary and benefits

decisions in BIA cases involving fire departments in Washington State have typically been made with

consideration of the salary and benefits provided by other fire departments with similar jurisdictional assessed

property values and populations. If the two departments functionally consolidate, merge, or otherwise

coalesce into a larger operational deployment model, it is likely that larger fire departments will be used in

equalizing and establishing appropriate salary and benefits in a new operational model.

Operations Work Schedules

The departments have the same shift rotation; 24-hours on, 48-hours off. However, they have slightly

different average work weeks, with AFD having two more Kelly Days than HFD. The following figure

summarizes the shift schedules, FLSA work periods, and average scheduled hours for operations employees:


44

Figure 29: Operations Staff Work Schedule

Schedule Components AFD HFD

Shift Rotation 24-on, 48-off 24-on, 48-off

Average Workweek Hours 49.7 50.5

FLSA Work Period 27 days 27 days

Total Annual Hours 2590 hours 2632 hours

Shift Start Time 0800 0800

Kelly Days 14 12

Scheduling

Near the end of the preceding year, each department assigns 12 Kelly Days for each employee. Vacations are

then chosen by the employees. AFD employees are then assigned the two additional Kelly days. The

departments have different methods on assigning Kelly Days, selecting vacations, and scheduling

compensatory time off. The average of the workweek schedules of the two departments is 50.08 hours per

week, or 2,611 annual average hours.

The 24-hour shift remains the predominant schedule for fire departments, including the two departments

studied. However, some departments have transitioned to a 48-hour shift. This is an especially attractive shift

schedule if employees must commute from long distances due to high housing costs, low housing inventory,

or other demographic factors. However, the 48-hour schedule has been questioned due to concerns about

sleep deprivation and safety impacts during the latter portion of the 48-hour shift. Given the significant

workload and frequency of overtime hire back to meet minimum staffing and perform out of county

ambulance transfers, a 48-hour shift is not a viable option.

As noted in Figure 24, each department should have additional personnel to provide coverage for scheduled

and unscheduled leaves. Compounding this shortage is the significant number of incidents experienced daily,

along with the reliance on overtime call-back to perform long distance interfacility ambulance transfers.

In looking at worker fatigue, and the impacts on safety, ESCI references Federal Motor Carrier Safety

Administration (FMCSA) regulations. This agency aggressively regulates and monitors commercial

transportation workers, including commercial pilots, railroad workers, long-haul truck drivers, and ship

workers due to fatigue concerns. With regard to long-haul truck and passenger carrying drivers, there are very

restrictive rules in place to address potential driver fatigue. ESCI highlights these specific requirements

because Fire/EMS employees routinely drive emergency vehicles in all types of weather conditions—often for

extended periods (long-distance interfacility transfers, for example). The following figure is a summary of the

rules for truck drivers. This is presented to provide context on the level of the federal government’s concern

on driver fatigue.16

16 349 Code of Federal Register 395.1-5.


45

Figure 30: Commercial Driver Rules for Work Hours

Property Carrying Drivers Passenger Carrying Drivers

11-Hour Driving Limit May drive a maximum of 11 hours after 10 consecutive hours off-duty.

10-Hour Driving Limit May drive a maximum of 10 hours after 8 consecutive hours off-duty.

14-Hour Limit May not drive beyond the 14th consecutive hour after coming on duty, following 10 consecutive hours off-duty. Off-duty time does not extend the 14-hour period.

15-Hour Limit May not drive after having been on duty for 15 hours, following 8 consecutive hours off-duty. Off-duty time is not included in the 15-hour period.

Rest Breaks May drive only if 8 hours or less have passed since end of the driver’s last off-duty or sleeper berth period of at least 30 minutes.

60/70-Hour Limit May not drive after 60/70 hours on duty in 7/8 consecutive days.

As noted in the preceding figure, the focus is not only on the length of the work periods, but also the length

of the off-duty/rest periods. shifts. Given the significant daily shift emergency response workload, the amount

of overtime worked between regularly scheduled shifts, and the relatively small available labor pool in each

department, firefighter fatigue and burnout are legitimate concerns in each department.

In ESCI’s experience, a functional and operationally efficient consolidation will require a homogenized shift

schedule. While each department has slightly different work schedules and annual hours for full-time

operations personnel, they are likely close enough that it should not present a significant obstacle in

operational consolidation efforts. However, as with any proposed change to working conditions, especially

resulting from a planned consolidation, it likely would require focused collaboration between the two

bargaining units and department leadership to identify an acceptable and cost-effective enterprise-wide

solution.


46

Service Delivery and Performance In this section of the report, ESCI reviews current service delivery and performance within the study area.

Observations will be made concerning service delivery for the study area as a whole, and for the individual

agencies where appropriate, dependent on the available data.

Demand Analysis

In the demand study, ESCI reviews current and historical service demand by incident type and temporal

variation for the study area and the participating jurisdictions. GIS software is used to provide a geographic

display of demand within the overall study area. The data used in this section is derived from the National Fire

Incident Reporting System (NFIRS) data extracted from the AFD and HFD records management software—

Emergency Reporting Systems (ERS). The following figure displays historical service demand in the study area

from 2016 through 2018.

Figure 31: AFD-HFD Study Area Historical Service Demand, 2016–2018

While AFD service demand decreased by over 6 percent (-6.4 percent), demand for HFD services increased by

over nine percent (9.6 percent) during the same time period. Overall, service demand decreased by slightly

less than one percent (0.8 percent) between 2016 and the end of 2018 in the combined service area.

Both AFD and HFD currently use ERS as their records management software (RMS). However, prior to July of

2018, Aberdeen used a different system to track EMS statistical data. With the exception of the previous

figure, ESCI uses statistical data from July 2018 through March 2019 in this section of the report; to ensure

that comparisons of the two agencies are comparable. The following figure uses National Fire Incident

Reporting System (NFIRS) incident categories to examine the nature of service demand in the study area.

2016 2017 2018

AFD 5,506 5,218 5,151

HFD 2,945 3,295 3,229

Study Area 8,451 8,513 8,380

0

1,000

2,000

3,000

4,000

5,000

6,000

7,000

8,000

9,000


47

Figure 32: AFD-HFD Study Area Service Demand by NFIRS Category, 07/01/2018–03/31/2019

NFIRS Category

AFD HFD Study Area

Count % of Total

Count % of Total

Count % of Total

1—Fire 102 2.7% 56 2.3% 158 2.5%

2—Rupture/Explosion 1 0.0% 0 0.0% 1 0.0%

3—Rescue/EMS 3,382 88.8% 2,071 84.8% 5,453 87.2%

4—Hazardous Condition 36 0.9% 14 0.6% 50 0.8%

5—Service Call 107 2.8% 137 5.6% 244 3.9%

6—Good Intent Call 85 2.2% 113 4.6% 198 3.2%

7—False Alarms 73 1.9% 51 2.1% 124 2.0%

8—Severe Weather/Disaster 0 0 0 0.0% 0 0.0%

9—Other Incidents 23 0.6% 1 0.0% 24 0.4%

Total: (07/01/2018–03/31/2019) 3,809 100% 2,443 100.00% 6,252 100.00%

In Figure 33, the nine NFIRS incident categories are aggregated into three categories of Fire, EMS, and Other.

Using the National Fire Incident Reporting System (NFIRS) incident type definitions, ESCI categorizes incidents

as “Fire” (structures, vehicle, brush, any 100 series incident in NFIRS), “EMS” (all calls for medical service

including MVAs and rescues, any 300 series incident in NFIRS), and “Other” (false alarms, hazmat incidents,

service calls, all other NFIRS incident series).

Figure 33: AFD-HFD Study Area Categorized as Fire, EMS, and Other, 07/01/2018–03/31/2019

As with most fire jurisdictions that provide EMS first responder and transport service, EMS incidents make up

most of the service demand for both AFD and HFD. EMS incidents represent nearly 89 percent of AFD service

demand and almost 85 percent of HFD service demand in the July 2018 through March 2019 data. Actual fires

comprise the smallest portion of service demand.

AFD HFD Study Area

Fire 2.7% 2.3% 2.5%

Other 8.5% 12.9% 10.3%

EMS 88.8% 84.8% 87.2%

0%

10%

20%

30%

40%

50%

60%

70%

80%

90%

100%


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Temporal Variation

Service demand is not static, and the AFD/HFD study area workload varies by time period. The following

figures illustrate how service demand varied by month, day of week, and hour of day from July 2018 through

March 2019 in order to identify any periods of time that pose significantly different risks and hazards. This

analysis begins by evaluating service demand by month.

Figure 34: AFD-HFD Study Area Service Demand by Month, 07/01/2018–03/31/2019

AFD and HFD service demand varies throughout the year. In general, the lowest demand occurs during the

winter months, with the highest demand for fire department services in the summer. The next figure looks at

service demand by day of the week.

Figure 35: AFD-HFD Study Area Service Demand by Day of the Week, 07/01/2018–03/31/2019

0%

2%

4%

6%

8%

10%

12%

14%

AFD HFD Study Area

0%

2%

4%

6%

8%

10%

12%

14%

16%

18%

AFD HFD Study Area


49

Service demand by day of the week varies within a relatively narrow range. The general trend in the study

area is that the lowest service demand occurs on the weekends and gradually increases throughout the work

week. On average, AFD responded to approximately 14 incidents per day and HFD responded to 9 incidents

per day, in the nine-month period displayed in Figure 35. The last analysis of temporal variation demonstrates

workload by hour of the day.

Figure 36: AFD-HFD Study Area Service Demand by Hour of the Day, 07/01/2018–03/31/2019

Figure 36 demonstrates that service demand directly correlates with the activity of people, with workload

increasing during the workday, and decreasing in the evening as shown in this figure. Over 65 percent of

overall service demand occurred between 8 a.m. and 8 p.m. The increase in service demand during the day is

significant and predictable. There is an opportunity to anticipate increased workload and improve response

performance by deploying additional apparatus or personnel during the busiest times of the day.

Geographic Service Demand

In addition to the temporal analysis of service demand, it is useful to examine the geographic distribution of

service demand. In the following figure, ESCI uses geocoded incident data and GIS software to calculate

incident density (incidents per square mile) to display the distribution of service demand in the Aberdeen and

Hoquiam area.

0%

1%

2%

3%

4%

5%

6%

7%

Mid

nig

ht 1 2 3 4 5 6 7 8 9

10

11

No

on 13

14

15

16

17

18

19

20

21

22

23

AFD HFD Study Area


50

Figure 37: AFD-HFD Study Area Incident Density, 07/01/2018–03/31/2019

The highest incident densities are in the core areas of both Aberdeen and Hoquiam. Additionally, areas of

higher incident density are present in Cosmopolis and on Constantine Way off Highway 105. The Constantine

Way location is the Stafford Creek Correctional Center (SCCC) operated by the State of Washington. AFD

provides service to this facility by contract. AFD also provides EMS transport service in Cosmopolis through a

contract.

The service demand displayed in this figure is comprised primarily of EMS incidents. The following figure

displays the distribution of AFD and HFD incidents categorized as a “Fire” in the July 2018 to March 2019 data,

this includes all types of fires.


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Figure 38: AFD-HFD Study Area Fire Incidents and Overall Incident Density, 07/01/2018–03/31/2019

Fire incidents are the least frequent incident type in the study area data set. However, fire incidents inside of

Aberdeen and Hoquiam are distributed in a pattern that is similar to the overall incident data.

Note that the preceding two figures display the area immediately around Aberdeen and Hoquiam. Both AFD

and HFD provide EMS service to large portions of Grays Harbor County outside of the city boundaries. These

areas are discussed in the Distribution Analysis.


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Resource Distribution Analysis

The analysis of distribution of resources presents an overview of the current deployment of fire department

facilities, equipment, and personnel within the AFD-HFD study area.

The following figure displays the AFD-HFD study area (city boundaries) and neighboring fire jurisdictions.

Figure 39: AFD-HFD Study Area and Adjacent Fire Jurisdictions

The incorporated boundaries of Aberdeen and Hoquiam encompass approximately 28.7 square miles, 12.3

square miles in Aberdeen and 16.4 square miles in Hoquiam. AFD and HFD both staff two stations 24 hours a

day, with career personnel.


53

The Washington Office of Financial Management (OFM) official population estimate for Aberdeen is 16,760

and 8,560 for Hoquiam, as of April 1, 2018. The next figure displays population density throughout the study

area, based on 2010 census block data.

Figure 40: AFD-HFD Study Area Population Density, 2010 Census Data

Using National Fire Protection Association (NFPA) criteria, ESCI summarizes Census Bureau block data as rural,

suburban, and urban based on population per square mile. The combined population of the study area based

on the OFM estimates is approximately 25,320. Based on population, Aberdeen and Hoquiam are the two

largest municipalities in Grays Harbor County. Except for small areas dispersed throughout the county, most

of Grays Harbor County is rural in nature.


54

In addition to providing fire and EMS service inside the boundaries of Aberdeen and Hoquiam, both

jurisdictions provide ALS and BLS transport service to a large portion of Grays Harbor County. The following

figure displays the AFD and HFD ambulance service areas, based on Grays Harbor County 911 Center GIS data.

Figure 41: AFD-HFD Ambulance Service Areas and Service Demand, 07/2018–3/2019


55

Figure 41 shows the areas where an AFD or HFD ambulance is dispatched to provide ambulance transport in

Grays Harbor County. The AFD ambulance service area encompasses approximately 311 square miles. The

HFD ambulance area includes approximately 520 square miles. ESCI also displays geocoded EMS incidents

which occurred outside of Aberdeen or Hoquiam in this figure.

Overall, in the July 2018 through March 2019 data, AFD and HFD responded to approximately 681 EMS

incidents outside of their primary service areas. AFD responded to approximately 329 EMS incidents and HFD

responded to approximately 352 EMS incidents outside of Aberdeen or Hoquiam.

The Washington Survey and Rating Bureau (WSRB) is a statewide insurance industry organization that

evaluates fire protection for communities across Washington. A jurisdiction’s WSRB rating is an important

factor when considering fire station and apparatus distribution since it can affect the cost of fire insurance for

community residents and businesses. To receive maximum credit for station and apparatus distribution, WSRB

recommends that all “built upon” areas in a community be within 1.5 road miles of an engine company.

Additionally, a structure should be within five miles of a fire station to receive any fire protection rating for

insurance purposes. In the following figures, ESCI examines fire facility distribution by WSRB distance criteria

over the existing road network.

Figure 42 demonstrates AFD-HFD engine company distribution based on the WSRB travel distance criteria.


56

Figure 42: AFD-HFD Study Area Engine Company Distribution, WSRB Criteria

All of the currently developed portions of the study area are within 5 miles travel of an AFD or HFD engine

company. GIS analysis reveals that over 86 percent of structures in Aberdeen and Hoquiam are within 1.5

miles of a fire station. Individually, 84 percent of structures in Aberdeen are within 1.5 miles of an AFD station

and approximately 90 percent of structures in the HFD service are within 1.5 miles of an HFD engine company.

Like engine company criteria, WSRB recommends that ladder companies (aerial apparatus) be placed at 2.5-

mile intervals in areas with buildings over three stories and high fire suppression water flow requirements.

Figure 43 demonstrates the 2.5-mile service area for the AFD and HFD aerial apparatus.


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Figure 43: AFD-HFD Study Area Aerial Apparatus Distribution, WSRB Criteria

Both AFD and HFD cross-staff aerial apparatus at their headquarters stations (AFD Station 1 and HFD Station

1). These stations are centrally located and provide aerial coverage to the downtown core areas and the

commercial and industrial properties along the Highway 101 corridor and along the waterfront throughout

the study area.

The most recent WSRB evaluation (2017) of Aberdeen and Hoquiam resulted in a WSRB protection

classification of Class 5 (Class 1 represents exemplary fire protection and Class 10 is no recognized fire

protection) for both communities.


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The WSRB Public Protection Classification program only addresses fire suppression activities and is primarily

concerned with the geographic coverage of property. For jurisdictions such as AFD and HFD, that respond to

all types of emergencies and provide EMS transport service, the travel time required to respond from a fire

station to any type of emergency call for service is of equal importance.

The national consensus standard NFPA 1710 provides travel time goals for fire, EMS, and special operations

emergency responses.17 The travel time analysis examines AFD and HFD travel time capability over the existing

road network, using the parameters of the NFPA 1710 standard. Travel time is calculated using the posted

speed limit and adjusted for negotiating turns and intersections. One-way street networks are also respected.

The NFPA 1710 standard specifies that career staffed fire departments should reach 90 percent of emergency

service demand in 4 minutes’ travel time or less. Additionally, the standard recommends that the full first

alarm assignment should arrive in 8 minutes’ travel or less at a fire suppression incident (measured at the 90th

percentile).

The following figures examine AFD-HFD study area travel time capabilities from the currently staffed fire

stations, based on the NFPA 1710 criteria.

17 NFPA 1710: Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Career Fire Departments (National Fire Protection Association, 2016).


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Figure 44: AFD-HFD Study Area Travel Time Model

The quality and connectivity of the street network, traffic, geography, and barriers can all affect potential

travel time performance. The street network in Aberdeen and Hoquiam provides relatively good access

through the service area. Bridges and street level railroad crossings are identified by both jurisdictions as

barriers that can affect travel time performance through the study area.

Figure 45 overlays July 2018 through March 2019 incident locations and the travel time model.


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Figure 45: AFD/HFD Study Area Travel Time Model and 07/01/2018–03/31/2019 Service Demand

Overall, approximately 98 percent of service demand inside of Aberdeen and Hoquiam is within 4 minutes’

travel or less of an AFD or HFD station. Individually, the AFD can reach nearly 98 percent of AFD service

demand inside Aberdeen in 4 minutes’ travel or less. The HFD stations are within 4 minutes’ travel or less of

slightly over 98 percent of incidents inside Hoquiam. All the service demand inside of Hoquiam or Aberdeen

occurred within 8 minutes’ travel of an AFD or HFD fire station.

The travel time model demonstrates potential travel time assuming all apparatus are in quarters and available.

Actual AFD and HFD response performance is discussed in the Response Performance section of this report.


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Resource Concentration Analysis

The concentration analysis examines the ability of AFD and HFD to assemble multiple resources (both

apparatus and people) so that sufficient resources to safely and effectively mitigate an emergency arrive in a

timely manner. The 8-minute travel time criteria used for this analysis is based on the National Fire Protection

Association (NFPA) 1710 standard. The standard specifies that the full first alarm assignment for a moderate

risk structure fire (single family dwelling, 2,000 square feet) should arrive within 8 minutes’ travel.

The following figure demonstrates the concentration of staffed fire stations in Aberdeen and Hoquiam within

8 minutes’ travel time or less.

Figure 46: AFD-HFD Study Area Station Concentration, 8 Minutes Travel


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As displayed, most of Aberdeen and Hoquiam are within 8 minutes’ travel of the four AFD and HFD staffed

fire stations. Virtually all of the developed portions of both cities can be reached by apparatus from three

stations in 8 minutes travel or less.

Both AFD and HFD identify 1 command officer, 3 engines, and 1 medic as the full first alarm assignment for a

structure fire. Both agencies include a mutual aid engine from each other as the third engine. The following

figure displays the portions of the AFD-HFD service area within 8 minutes’ travel or less of a full first alarm

assignment for a structure fire.

Figure 47: AFD-HFD Study Area Full First Alarm (Structure Fire), 8 Minutes’ Travel


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Figure 47 reveals that most of Aberdeen and Hoquiam are within 8 minutes’ travel or less of a full first alarm

assignment for a structure fire. Fire service best practices documents recommend that an effective response

force (ERF) of 14 to 16 personnel are needed to safely and effectively mitigate a moderate risk residential

structure fire.18 The AFD and HFD first alarm assignment brings 10 personnel to the scene of a structure fire,

less than the recommended 14 to 16 personnel. Examination of the GIS data reveals that apparatus from at

least three stations are required to assemble the apparatus and personnel required for a full first alarm inside

Aberdeen or Hoquiam. Based on current minimum staffing (AFD: 8 personnel and HFD: 5 personnel), there

are 13 operational personnel on duty in the four stations serving the study area.

As with the travel time model, the concentration models measure potential travel time performance if all AFD

and HFD units are in quarters and available to respond. The workload and the availability of the study area

apparatus is discussed in the Reliability Analysis. Mutual aid resources from neighboring fire jurisdictions are

not included in this analysis. Other mutual aid or automatic aid resources are discussed later in this report.

Resource Reliability Analysis

The workload of emergency response units can be a factor in response time performance. The busier a given

unit, the less available it is for the next emergency. If a response unit is unavailable, then a unit from a more

distant station must respond, increasing overall response time. Although fire stations and response units may

be distributed in a manner to provide quick response, that level of performance can only be obtained when

the response unit is available in its primary service area.

The following figure summarizes the number of apparatus AFD and HFD committed to individual incidents

between July 2018 through March 2019.

Figure 48: AFD-HFD Study Area Apparatus Drawdown, 07/01/2018–03/31/2019

Count of Apparatus AFD HFD Overall

Single Unit 65.4% 70.4% 67.4%

2 Units 27.1% 25.3% 26.4%

3 Units 5.5% 3.7% 4.8%

4 or More Units 2.0% 0.6% 1.5%

A single unit responded to the majority of AFD or HFD incidents in the time period displayed in this figure.

Overall, over 67 percent of service demand was handled by a single apparatus. Over 93 percent of overall AFD

and HFD service demand is handled by one or two apparatus. Note that the data used in this figure includes

all AFD and HFD incidents, including contract areas and mutual or automatic aid outside of Aberdeen or

Hoquiam.

18 NFPA 1710: Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Career Fire Departments (National Fire Protection Association 2016); The Center for Public Safety Excellence (CPSE) Community Risk Assessment: Standards of Cover, 6th Edition, 2016.


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Simultaneous or concurrent incidents can affect a fire department’s ability to muster enough resources to

respond to additional emergencies. The following figure demonstrates the percentage of the time that AFD

and HFD resources were committed to more than one incident at the same time in FY 2017 and FY 2018.

Figure 49: AFD-HFD Study Area Concurrent Incidents, 07/01/2018–03/31/2019

Concurrent Incidents AFD HFD Overall

Single Incident 47.3% 52.7% 37.4%

2 Incidents 44.2% 42.9% 54.3%

3 Incidents 7.0% 4.1% 6.7%

4 or More Incidents 1.5% 0.4% 1.7%

Overall, of the 6,252 incidents for both agencies, the percentage of concurrent incidents exceeds 62 percent

(62.6%). The percentage of overlapping AFD incidents is nearly 53 percent (52.7%) and approximately 47

percent (47.3%) of HFD incidents overlapped for some amount of time. Seven concurrent incidents were the

maximum number of overlapping incidents that occurred in the overall study area.

Unit hour utilization (UHU) analyzes the amount of time that a unit is not available for response because it is

already committed to another incident. The larger the number, the greater its utilization and the less available

it is for assignment to subsequent calls for service.

The following figure displays the total time AFD and HFD primary response apparatus were committed to an

incident and expresses this as a percentage of the total time the apparatus is in service (6,576 hours for 24

hour units) between July 2018 through March 2019.


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Figure 50: AFD-HFD Unit Hour Utilization, 07/01/2018–03/31/2019

Station Unit

UHU July 2018 through March 2019

Count of Incidents Average Time

Committed Total Time Committed

UHU

AFD Station 1

Battalion Chief 10 583 22:32 218:55:14 3.33%

Engine 10 1,095 22:14 405:47:16 6.17%

Ladder 10 16 56:53 15:10:09 0.23%

Medic 10 1,947 35:22 1147:24:14 17.45%

Medic 14 308 38:20 196:48:49 2.99%

Medic 16 167 2:46:08 462:23:11 7.03%

AFD Station 2 Engine 12 423 25:35 180:18:40 2.74%

Medic 12 919 39:48 609:41:02 9.27%

HFD Station 1

Command 1 344 17:37 101:01:25 1.54%

Engine 1 238 23:37 93:42:13 1.42%

Ladder 1 10 1:10:03 11:40:26 0.18%

Rescue 1 127 22:35 47:47:29 0.73%

Medic Ambulance 1 1,326 45:17 1000:49:14 15.22%

Medic Ambulance 3 98 1:23:42 136:42:41 2.08%

Medic Ambulance 4 132 3:48:44 503:13:01 7.65%

HFD Station 2 Engine 2 183 30:51 94:05:54 1.43%

Medic Ambulance 2 709 39:46 470:00:25 7.15%

Not surprisingly, the AFD and HFD first out ambulances display the highest UHU rates. AFD Medic 10

demonstrates the highest UHU rate (17.45%) of any AFD-HFD unit. The UHU rate for HFD Medic Ambulance 1

exceeds 15 percent. AFD Engine 10 experienced the highest workload (1,095 incidents and 6.17% UHU) of any

fire apparatus. The average time AFD units were committed to an incident is just over 36 minutes (36:07). HFD

units averaged approximately 46.5 minutes (46:32) per incident. The high utilization rate and average time

committed displayed for AFD Medic 16 and HFD Medic Ambulance 4 is most likely the result of these units

being used for out of the area transfers.

Note that both AFD Station 2 and HFD Station 2 cross-staff fire and EMS units. Practically speaking this means

that the workload and utilization rate for the personnel assigned to these stations is the sum of the workload

and utilization rate for both the engine and medic units assigned to these stations. Additionally, a similar

situation occurs at both jurisdiction’s Station 1, since second out EMS responses are usually handled by engine

company personnel.


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It is important that AFD and HFD monitor workload and unit hour utilization. These factors affect not only

emergency response performance by reducing the availability of first due units; but fire service best practices

documents such as the Center for Public Safety Excellence (CPSE) Community Risk Assessment: Standards of

Cover (6th Edition, 2016), suggest that UHU rates in the range of 25 to 30 percent can negatively affect

response performance and lead to personnel burnout issues. In addition, as the UHU rate increases,

companies are less able to perform other duties such as training, public education, or company inspections.

AFD and HFD should monitor unit workload and unit hour utilization to ensure that response performance

and other duties are not negatively affected by increased unit hour utilization.

Response Performance Analysis

In the Response Performance Analysis, ESCI examines AFD and HFD emergency incident response time

performance within Aberdeen and Hoquiam. ESCI examines emergency response performance for each

jurisdiction and the overall Aberdeen and Hoquiam service area. The data used is extracted from both

department’s records management software, ERS. As in other sections of this report the time period for the

data is July 1, 2018, through March 31, 2019. Non-emergency incidents, mutual or auto aid incidents outside

of Aberdeen or Hoquiam, data outliers, and invalid data were removed from the data set whenever possible.

Both AFD and HFD measure and report response time from the time the fire department is notified of the

incident to when the first fire department unit arrives on scene. ESCI calculates both average and 90th

percentile emergency response performance. The use of percentile measurement of the components of

emergency response time performance follows the recommendations of industry best practice documents

such as the NFPA 1710 Standard for Career Fire Departments and the Center for Public Safety Excellence

(CPSE/CFAI) Standards of Cover document.

Percentile measurement means that if the stated value is nine minutes measured at the 90th percentile, 90

percent of response times are 9 minutes or less. ESCI also calculates average response times—which usually

represents approximately 50 to 60 percent of response times, since this is a familiar measure, which measures

the central tendency of the data set.

ESCI measures total response time performance from the time the alarm is received at the PCC dispatch center

to when the first apparatus arrived on the scene of the emergency. Both average and 90th percentile response

performance is calculated for these emergency incidents. The use of percentile measurement of the

components of emergency response time performance follows the recommendations of the NFPA 1710

Standard and the Center for Public Safety Excellence (CPSE/CFAI) Standards of Cover document.

The following figure displays overall emergency response time frequency inside Aberdeen and Hoquiam from

July 1, 2018, through March 31, 2019.


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Figure 51: AFD-HFD Emergency Response Time Frequency (City), 07/01/2018–03/31/2019

After applying the filters discussed previously, this figure displays emergency response time performance for

3,416 total emergency incidents (2,647 incidents inside Aberdeen and 769 incidents inside Hoquiam). The

most frequently recorded total response time for emergency incidents is between four and five minutes. The

overall average is 5 minutes, 20 seconds, with the first unit on scene arriving at 90 percent of emergencies in

7 minutes, 57 seconds or less. The following figure displays emergency response time performance for AFD

and HFD.

Figure 52: AFD-HFD Response Performance (Aberdeen and Hoquiam), 07/01/2018–03/31/2019

0%

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90th Percentile 08:13 07:05 07:57

00:00

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On average, the first AFD unit arrives at an emergency incident in Aberdeen in 5 minutes, 31 seconds after

units are dispatched. HFD units require 4 minutes, 40 seconds for the first unit to arrive at an emergency in

Hoquiam. The first AFD unit is on the scene of 90 percent of emergencies in 8 minutes, 13 seconds; and an

HFD unit arrives at 90 percent of emergencies in Hoquiam in 7 minutes, 5 seconds.

The previous figures measure response time (as measured by AFD and HFD). Response time is composed of

the following components:

• Turnout Time—The time interval between when units are notified of the incident and when the

apparatus begins traveling to the incident.

• Travel Time—The amount of time the responding unit spends traveling to the incident.

• Response Time—"Response Time” equals the combination of “Turnout Time,” and “Travel Time.”

Tracking the individual pieces of response time assists with identifying deficiencies and areas for

improvement. Industry best practice documents such as the Center for Public Safety Excellence (CPSE)

Community Risk Assessment: Standards of Cover document and the national consensus standard NFPA 1710

recommend that fire departments track and report all the components of response time.19

The following figure provides a synopsis of the NFPA 1710 performance indicators. These are provided as a

point of reference against which AFD and HFD can measure their current response performance.

Figure 53: NFPA 1710 Response Performance Criteria

Response Element NFPA Recommendation

Call Processing20,21 64 Seconds @ 90th Percentile

Turnout Time 60 Seconds @ 90th Percentile for EMS 80 Seconds @ 90th Percentile for Fire

Travel Time (First unit on scene-Fire or EMS) 4 Minutes’ Travel (240 seconds) @ 90th Percentile

Travel Time-Full First Alarm (Fire Suppression Incident) 8 Minutes’ Travel (480 Seconds) @ 90th Percentile

Figure 54 illustrates overall emergency response performance for the various components of response time

inside Aberdeen and Hoquiam.

19 Center for Public Safety Excellence (CPSE) Community Risk Assessment: Standards of Cover, 6th Edition., NFPA 1710, Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Career Fire Departments (National Fire Protection Association 2016).

20 NFPA 1221: Standard for the Installation, Maintenance, and Use of Emergency Services Communications Systems.

21 See NFPA 1221 Chapter 7, Section 7.4 for exceptions to call processing time recommendation for specific call types.


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Figure 54: Overall Components of Response Performance (Aberdeen and Hoquiam), 07/01/2018–03/31/2019

Neither AFD nor HFD have adopted formal response performance goals, however the NFPA 1710 Standard for

Career Fire Departments is used as the informal guideline for measuring response performance. Comparing

the previous two figures (Figure 53 and Figure 54) reveals that currently (07/2018–03/2019), performance in

Aberdeen and Hoquiam does not meet the NFPA 1710 recommendations for turnout time or travel time. This

is not to infer that AFD and HFD are performing poorly, but simply provides a point of reference. Tracking the

individual pieces of response time performance enables fire department leaders to identify deficiencies and

areas for improvement. The NFPA standard is not a mandate; but does represent a national consensus

standard that is based on current research and data that is periodically reviewed and updated.

Call Processing Time

Call processing time is defined as the time interval between when the call is received at the dispatch center

to when the responding agency is notified of the emergency. As discussed previously, both AFD and HFD

report and record response time from the time the fire department is notified to the arrival of the first unit

on scene. This is a common practice for fire jurisdictions, especially when the dispatch center is not operated

by the fire department. However, ESCI encourages AFD and HFD to work cooperatively with Grays Harbor

Communications 911 Center to monitor call processing time.

Turnout Time Travel Time Response Time

Average 02:19 03:01 05:20

90th Percentile 03:36 05:23 07:57

00:00

01:00

02:00

03:00

04:00

05:00

06:00

07:00

08:00

09:00


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Turnout Time

Turnout is the time it takes personnel to receive the dispatch information, move to the appropriate apparatus

and proceed to the incident. The NFPA 1710 performance standard for turnout time is within 80 seconds

(01:20), 90 percent of the time for fire and special operations incidents; and within 60 seconds (01:00), 90

percent of the time for EMS incidents. The figure below displays AFD and HFD turnout time performance.

Figure 55: AFD-HFD Emergency Turnout Time Performance (Aberdeen and Hoquiam), 07/01/2018–03/31/2019

AFD and HFD turnout time is similar, whether measured on the average or at the 90th percentile. On average,

turnout time for both jurisdictions were between 2 minutes, 15 seconds to 2 minutes, 20 seconds. Measured

at the 90th percentile, both jurisdictions required approximately 3.5 minutes from the time units are

dispatched to begin traveling to an emergency incident.

AFD and HFD turnout time performance does not meet the NFPA 1710 standard. However, a study published

in 2010 by the NFPA research foundation asserts that current turnout time standard may be unrealistic and

possibly unachievable in many instances.22 This said, there is room for both jurisdictions to improve response

performance by improving turnout time performance. ESCI recommends that AFD and HFD routinely monitor

turnout time performance, identify deficiencies, and take steps to reduce turnout time. Turnout time is an

area of response performance that field personnel have some ability to control, given adequate information

and facilities that allow for rapid and efficient movement of personnel.

22 Quantitative Evaluation of Fire and EMS Mobilization Times, May 2010, available at www.nfpa.org/foundation.

Average 90th Percentile

AFD 02:20 03:37

HFD 02:15 03:30

00:00

00:30

01:00

01:30

02:00

02:30

03:00

03:30

04:00


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Travel Time

The NFPA 1710 standard calls for a travel time of 4 minutes for the arrival of the first arriving unit to an

emergency incident (Fire/Special Operations or EMS). Travel time is potentially the longest component of total

response time. The following figure demonstrates AFD and HFD emergency travel time performance.

Figure 56: AFD-HFD Emergency Travel Time Performance (Aberdeen and Hoquiam), 07/01/2018–03/31/2019

The average emergency travel time of both jurisdictions meets the NFPA 1710 recommendation for travel

time performance. Measured at the 90th percentile, both AFD and HFD travel time performance does not meet

the NFPA standard. Note that the difference in travel time performance (90th percentile, 51 seconds) between

AFD and HFD appears to be the primary factor in the difference in total response time performance displayed

in Figure 52 which shows a 68 second difference between AFD and HFD response performance. Examination

of the incident data reveals that 74 percent of AFD emergencies were reached in 4 minutes travel or less. HFD

reached approximately 85 percent of emergency incidents in 4 minutes travel or less.

Average 90th Percentile

AFD 03:12 05:31

HFD 02:26 04:40

00:00

00:30

01:00

01:30

02:00

02:30

03:00

03:30

04:00

04:30

05:00

05:30

06:00


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Response Time—First Unit on Scene

The NFPA 1710 standard does not specify a performance goal for response time. Combining the components

of response time cited in NFPA 1710 results in a total response time of 6 minutes or less (90th percentile) for

EMS emergencies and 6 minutes, 20 seconds (90th percentile) for fires and all other emergency incidents.

Figure 57 displays response time summarized as Fire/Other and EMS emergencies (07/01/2018–03/31/2019).

In this figure, “Fire” refers to any incident coded as a fire in the incident data. The “EMS” category includes

emergency calls for medical service including motor vehicle accidents and rescue calls. The “Other” category

includes hazmat incidents, alarms, smoke/gas/odor investigations, and any other emergency incident.

Figure 57: AFD-HFD Response Time by Incident Category (Aberdeen and Hoquiam), 07/01/2018–03/31/2019

Response times may vary depending on the type of emergency reported. EMS calls (other than MVAs) do not

require donning protective equipment, fire calls require firefighters don protective equipment prior to the

apparatus leaving the station, and some incidents require specific apparatus or personnel that may result in

a longer travel time and hence a longer total response time. When summarized by incident category, HFD still

exhibits better response time performance, most likely due to the shorter travel time performance displayed

in Figure 56.

EMS Fire/Other EMS Fire/Other EMS Fire/Other

AFD HFD Overall

Average 05:31 05:34 04:37 05:14 05:19 05:29

90th Percentile 08:11 08:31 06:59 07:45 07:56 08:22

00:0000:3001:0001:3002:0002:3003:0003:3004:0004:3005:0005:3006:0006:3007:0007:3008:0008:3009:00


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Mutual and Automatic Aid Systems

Communities have traditionally forged limited agreements to share resources under circumstances of extreme

emergencies or disasters. These agreements, known as mutual aid agreements, allow one community to

request the resources of another in order to mitigate an emergency situation or disaster that threatens lives

or property. Mutual aid is typically employed on an “as needed” basis where units are called for and specified

one by one through an Incident Commander. Automatic aid agreements differ from mutual aid agreements

in that under certain mutually agreed upon criteria, resources from the assisting agency are automatically

dispatched as part of the initial response. These agreements facilitate closest unit dispatch to emergencies in

boundary areas and allow for the dispatch of additional apparatus and personnel to specific predefined

emergencies.

AFD and HFD actively participate in countywide and regional mutual aid agreements. Both agencies interact

with other emergency service providers, including other fire and EMS jurisdictions, law enforcement, state

and federal wildland fire agencies, and the U.S. Coast Guard.

The following figure displays AFD and HFD automatic or mutual aid responses between July 1,2018, and March

31, 2019.

Figure 58: AFD-HFD Mutual or Automatic Aid, 07/01/2018–03/31/2019

Type of Aid AFD HFD

Count % of Total Count % of Total

Automatic aid given 23 0.6% 214 8.8%

Mutual aid given 7 0.2% 170 7.0%

Other aid given 2 0.1% 3 0.1%

Mutual aid received 14 0.4% 11 0.5%

Automatic aid received 39 1.0% 24 1.0%

None 3,724 97.8% 2,021 82.7%

Total Incidents 3,809 2,443

Overall, according to the NFIRS data, AFD provided mutual or automatic aid to other fire jurisdictions 32 times

(0.8% of total incidents) and received aid 53 times (1.4% of total incidents). HFD provided aid 387 times (15.8%

of total incidents) and received aid 35 times (1.6% of total incidents). However, examination of the data

reveals that as discussed in the distribution analysis, AFD responded to approximately 329 EMS incidents (8.6%

of total incidents) outside of Aberdeen; while HFD responded to 352 EMS incidents (14.4% of total incidents)

during the same time period. The disparity in the data is due to a difference in the way AFD and HFD track

mutual or automatic aid responses. HFD provides EMS transport service by contract to nine different fire

jurisdictions in Grays Harbor County. Responses to these contract areas are recorded as aid given in the HFD

data. AFD provides EMS transport service by contract to three fire jurisdictions, unprotected areas, and the

Stafford Creek Correctional Center. These responses are not recorded as aid given.


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Contracted response areas are typically not considered mutual or automatic aid, since part of the definition

of mutual or automatic aid is that the aid should be mutually beneficial and reciprocal. ESCI suggests that HFD

consider changing the way incidents into the contract response areas are recorded and reported. It is

important that both AFD and HFD accurately track response activity outside of Aberdeen or Hoquiam, since

these responses represent a significant portion of service demand for both agencies.

Removing the HFD contract EMS responses from the aid given data, results in approximately an even

distribution of aid given to aid received incidents in the HFD July 2018 through March 2019 data. Most of the

incidents inside Aberdeen or Hoquiam recorded as aid received involve AFD or HFD resources as the

department providing aid.

The following figure displays the AFD-HFD service area and neighboring fire jurisdictions.


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Figure 59: AFD-HFD Study Area, Adjacent Fire Districts

While AFD and HFD both work cooperatively with neighboring fire jurisdictions, most of the fire districts

displayed in this figure are volunteer or combination fire departments with limited staffing that may or may

not be available to respond. The rural nature of the area around Aberdeen and Hoquiam isolates AFD and HFD

to some extent and provides few opportunities for timely mutual or automatic aid responses into Aberdeen

or Hoquiam.


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Training Program Delivering safe and effective fire and emergency services requires a well-trained workforce. Initial, ongoing,

and high-quality training and education is critical for agency effectiveness and safety of its personnel. Without

it, the community may experience poor outcomes and/or emergency responder injury or death.

Initial training of newly hired firefighters is essential, requiring a structured recruit training and testing

process, after which regular ongoing verifiable training must be conducted to ensure skill and knowledge

retention and competency. Delivering high quality training requires dedicating significant internal training

resources, and/or contracting with outside agencies and providers for these services. High quality training

requires written specific objectives, lesson plans, and methods to verify learning knowledge comprehension

and retention.

In the following section, ESCI reviewed AFD and HFD’s fire, EMS, and specialized training programs, resource

allocation, schedule, training documents, and practices. We then compared these support programs to

national standards and best practices and made recommendations where appropriate.

Training Resources & Methodology

Delivering high quality training to fire and EMS personnel requires providing instructors with specific tools and

facilities. AFD relies on in-house International Fire Service Accreditation Congress (IFSAC) certified instructors.

HFD occasionally uses IFSAC instructors as required for the specific course being taught. Approximately one-

third of AFD officers are IFSAC Instructor I certified, and two officers are Instructor II certified. With few

exceptions, all officers between the two departments are certified Incident Safety Officers.

Adequate training space, props, and equipment are vital to ensuring safe and effective emergency operations.

While neither department has a dedicated training ground for fire operations, drivers rodeo, or training tower,

AFD has access to a vacant paved lot with a water supply for various fireground and driver rodeo evolutions.

They also have a mobile live burn Conex prop, and roof ventilation prop. HFD has a dedicated training room

that can seat approximately 15 people, and does not have an adequate training ground or props.

General Training Competencies

Along with required tools, props and facilities, standardized training is another critical component in providing

high quality emergency response training throughout the organization. This training should be based on

established standards, best practices, and validated curriculum. There are a variety of sources for training

standards. Both departments reference the National Fire Protection Association (NFPA), IFSAC, Washington

State Emergency Vehicle Incident Prevention (EVIP) program, and International Fire Service Training

Association (IFSTA) curriculums, and comply with applicable federal occupational safety and health (OSHA)

regulations and standards. They also follow the Washington State Department of Health EMS and Trauma

System requirements for EMS providers.


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Training Manual, Methodologies, & Scheduling

AFD training is coordinated by shift Battalion Chief Dave Golding. Matt Miller, a Headquarters Captain, is

responsible for the HFD training program, and oversees a Training Committee comprised of five company

officers. All of these personnel are assigned to a specific shift, which limits their ability to effectively coordinate

training delivery and administration across the shifts.

Classes and drills in both departments are typically conducted and facilitated by company officers. Safety is

stressed during all training, during regular drills and exercises, and emergency scene operations. Specialized

training, including technical rescue awareness, Hazmat, EMS, and leadership courses are taught by outside

subject matter experts. Certain HFD classes are routinely delivered via the Target Solutions® web-based

software program. AFD recently started using this program as well.

Initial EMT courses are conducted through Grays Harbor College. The Grays Harbor EMS Trauma Care Council

(GHEMS) annually identifies EMS continuing education topics and required skills assessments. Didactic EMS

education is delivered through the EMS Connect® web-based software program. Personnel certified as

Ongoing Training and Evaluator Program (OTEP) instructors oversee practical skills checkoffs.

New Personnel Training

Comprehensive and robust training of new emergency services personnel is critical to ensuring their safety

and effectiveness before being authorized to respond to emergency incidents. Specific knowledge and skills

for basic fireground, EMS, incident command, and other basic emergency operations must be effectively

taught and retained by new employees. Previously, AFD and HFD required Firefighter I certification as a pre-

requisite for hire, and new employees participated in a three-day orientation program before being assigned

to a shift. ESCI understands the Firefighter I pre-requisite requirement has been dropped, and planning is

underway to either conduct a local recruit academy, or send recruits to an existing regional recruit academy.

The officers responsible for training in both departments feel the three-day orientation is not sufficient to

properly integrate new employees into their organizations.

Incumbent & Specialized Training Hours

After their first year of employment, firefighters participate in varying types of training activities, almost all of

which are facilitated by company officers. The following figure is a summary of the training hours

accomplished in each department in 2017:

Figure 60: Training Hours, 2017

General Training Topic AFD Hours HFD Hours

Fire 551 3,528

EMS 1,023 667

Other1 1,287 587

Total Training Hours 2,861 4,835

Average Total Hours per trained employee 87 230 1

Topics include: Leadership, HazMat, Safety, PPE, Rescue, Driving, Apparatus operations, and

Administration


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Each department schedules monthly training topics, which are often adjusted to take advantage of resources

that become available. Due to the high call volume and limited on-duty staff, interdepartmental drills and

training are rare.

Training Program & Administration

To function effectively, a training program must be closely monitored, supported, and funded. Administrative

program support is important, along with program guidance in the form of training planning, goals, and

defined objectives. The next figure reviews the Training Program administration and management practices.

Figure 61: Training Program Administration & Management

Training Program AFD HFD

Goals & objectives identified? Yes Yes

Certified instructors used? Yes, IFSAC I When possible/needed

Annual training report produced? Yes Yes

Priority by management toward training? Yes Yes

Budget allocated to training? Fire $13,000; EMS $7,000 Fire $7,000; EMS $1,500

Condition of capital facilities for training admin.? N/A N/A

Adequate office space, equipment, supplies? Yes Generally yes, not always

Clerical staff support assigned to training admin? No No

Both departments record and archive training in the Emergency Reporting® cloud-based database, and publish

an annual training report. The assigned training officers in each department monitors expiration dates to

ensure completion of required annual training. Each department uses different criteria for what is considered

“training” activities. As a result of a recent Washington Survey and Ratings Bureau audit, HFD now logs daily

rig checks and certain maintenance activities as training. AFD does not log these tasks as training activities.

ESCI noted that the number of training hours between the two organizations varied significantly. This is likely

due to the differing philosophy of what constitutes training activities in each department, with HFD appearing

to have a more liberal definition of training activities.

Training Program Discussion

During the site visit, ESCI noted considerable frustration and concerns from staff in the two departments

related to training delivery. As a result of budget constraints, little to no off-shift training is conducted that

results in overtime expense. This, coupled with the high daily call load, often results in sporadic and

incomplete training among crews, requiring onerous administrative follow up, make up classes, and

redundant training delivery. While training at the engine company/station level helps contain overtime

expense, the high call volume likely prohibits the delivery of high-quality training to on duty crews, especially

for multi-company fireground exercises.


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Specialized Emergency Response

A cursory review of the geographical and industrial hazards in the Aberdeen/Hoquiam area reveals significant

exposure for AFD and HFD. The cities are surrounded by steep topography, rivers, Grays Harbor, and large

industrial and marine zones that present significant hazards such as; Hazardous Materials spills, high/low

angle rescues, trench/collapsed earth rescues, swift water/surface water rescues, and confined space rescues.

ESCI understands that, with the exception of Hazardous Materials Operations training and response, there is

no specialized emergency response/technical rescue capability in either jurisdiction, or other Grays Harbor

emergency response organization. A volunteer non-profit search and rescue team—Grays Harbor Volunteer

Search and Rescue (GHVSR)—is equipped to conduct ground-based canine search and rescue missions only.

The Thurston County Special Operations Rescue Team (SORT) is likely the closest available public agency

technical rescue team. This team, comprised of highly trained personnel from various Thurston County fire

agencies, is trained and equipped to conduct high/low angle rescues, confined space rescues, complex auto

extrication rescues, and trench rescues.

AFD and HFD Crews participate in occasional technical rescue awareness level training, focusing on scene

safety, recognition of special hazards, and how to call for specialized resources when necessary.

Specialized Emergency Response Discussion

Technical Rescue and large-scale hazardous materials releases are, fortunately, low frequency events.

However, they are also high-risk events for responders, especially as it pertains to surface water rescue, high

angle/low angle rescue, and confined space rescue. To illustrate this point, a confined space rescue situation

involving three overcome workers occurred in Key Largo, Florida, in January 2017 resulted in a Key Largo

firefighter’s near death when he entered the space without respiratory protection to attempt a rescue. Once

inside the space, he was quickly overcome by toxic fumes and lack of oxygen in the space. Another firefighter

was able to enter the space wearing self-contained breathing apparatus and tie a rope around the firefighter,

who was then extricated without a pulse or respirations. He was placed in an induced coma, and returned to

work only after months of medical treatment and rehabilitation.23

Given the unique and extreme hazards associated with entering and working in confined spaces, OSHA and

the Washington State Department of Labor and Industries established very specific rules related to these

operations, and also the requirements for ensuring timely, safe, and effective rescue. ESCI understands some

local industrial company’s contract with a private company to provide confined space rescue standby services

to meet state law. However, it is suspected many others are incorrectly relying on their local fire departments

to provide confined space rescue in a manner that is contrary to state law. Appendix H in the Washington

Administrative Code (WAC) Chapter 296-809 provides specific guidance and evaluation criteria for confined

space rescue teams. To comply with the law, companies that are planning work inside a permit-required

confined space must ensure:

23 Training Gaps Nearly Kill Key Largo Firefighter, FLKeysNews, https://www.flkeysnews.com/news/local/article163672803.html, July 26, 2017.

https://www.flkeysnews.com/news/local/article163672803.html,%20July%2026

https://www.flkeysnews.com/news/local/article163672803.html,%20July%2026


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1. A standby rescue team is identified, equipped, and ready to respond in a timely manner.

2. The company must evaluate and approve the team’s capability to effectively and safely perform a

rescue.

3. The team must be available for the duration of the entry(s). If the team is not available, confined space

operations must be suspended until the team is available.

4. Ensuring the team is aware of the entry operation, and is prepared to conduct a rescue if necessary.

Establishing and maintaining multi-discipline technical rescue capabilities is very labor intensive and

expensive. Initial training in each discipline takes significant time, requires specialized equipment, and must

be unencumbered by daily emergency response requirements. Given the low frequency and high hazards of

these types of emergencies, constant ongoing training must be supported to maintain safe operational

readiness. As a result of these requirements, some smaller emergency response agencies have combined their

resources and personnel, building regional teams comprised of specially trained responders from various

emergency response organizations. This configuration helps ensure no single agency is overburdened by the

cost and administration in the provision of technical rescue. The Thurston County SORT appears to be an

example of this approach. Establishing a public/private partnership with local industries is another approach

in use today. For example, the Whatcom County Specialized Emergency Response Program (SERP), is

comprised of fire, law enforcement, and private company representatives who operate under interlocal

agreements and contracts to provide hazardous materials response throughout the county. The construct of

the organization, bylaws, and interlocal agreements were initially designed to include technical rescue

services. However, the services of the team have yet to expand into this arena.

The technical and geographical hazards and lack of available local technical rescue resources within AFD and

HFD should be of great concern. In the absence of timely expert rescue capability, response crews may be

tempted to perform rescues they are not trained or equipped for, resulting in significant injury or death of

responders and victims. Consideration and effort should be given to creating a multi-agency technical rescue

capability, including emergency response agencies from willing response agencies. Further, integration and

partnerships with private companies that have specialized rescue/emergency response capabilities should be

explored as well.


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Recommendations:

If consolidation occurs:

• Assign a day shift Training Chief Officer. Continue the Training Committee approach, overseen by

the Training Chief.

• Ensure all company officers are Instructor I certified.

• Consider extending the length of time new employees are oriented to the department to ensure

they are better prepared to assume shift emergency response duties.

• Establish standardized criteria for the definition of training activities.

• Consider hiring back personnel on overtime to allow for on duty crews to participate in multi-

company drill evolutions and other involved training.

• Consider creating a regional technical rescue team.

• Seek out outside financial training support through government and/or corporate grant

opportunities.

• Create a training ground/center, with appropriately designed training props and classroom facility.

Ideally, the facility should be centrally located.


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Prevention & Life-Safety Historically, fire departments have emphasized the importance of public education and prevention programs.

The financial impact of a fire or injury goes well beyond the cost of extinguishment or treatment. The long-

term impact realized by an individual property owner through the loss of revenue is significant. However,

additional fiscal impacts may be felt by the community through the loss of employee salaries and associated

spending. It is also not uncommon for businesses to never re-open following a fire, and the community further

suffers through the loss of tax revenue.

A proactive fire prevention and life-safety program, based on effective application of relevant codes and

ordinances, can reduce loss of property, life, and the personal disruption that accompanies catastrophic fires

and accidents.

The implementation of fire codes, smoke alarms, and sprinkler programs are examples of successful programs

that have had a positive impact throughout North America. However, fire departments have moved beyond

simple fire prevention programs into a number of other areas including citizen CPR and AED programs to

improve cardiac arrest survival rates, bike helmet safety programs, drowning prevention, and fall

prevention—to name a few examples.

Many fire departments are now conducting community risk assessments in order to identify potential risks

that warrant the highest priority. Based on the results of these analyses, they are developing Community Risk

Reduction (CRR) plans and programs. A comprehensive CRR plan may be a fire department’s best opportunity

to minimize the losses and human trauma associated with fires and other community risks.

The National Fire Protection Association recommends a multifaceted, coordinated risk reduction

process at the community level to address local risks. This requires engaging all segments of the

community, identifying the highest priority risks, and then developing and implementing strategies

designed to mitigate the risks.24

Modern fire departments need to review and understand the importance of fire prevention and public

education, and appreciate their role in the planning process of a community with diversified zoning, including

residential, commercial, and industrial properties.

In Aberdeen, the typical duties and responsibilities of a Fire Marshal are assigned to the Assistant Chief. The

same is true in Hoquiam; along with the Fire Chief (position is currently vacant). In this report, unless otherwise

specified, references to the “Fire Marshal” will apply to either of the Assistant Chiefs at each of the fire

departments.

The fundamental components of an effective fire prevention program are listed in the following figure,

accompanied by the elements needed to address each component.

24 Kirtley, Edward, Fire Protection Handbook, 20th Edition, 2008, NFPA, Quincy, MA.


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Figure 62: Fire, Injury, & Illness Prevention Program Components

Fire Prevention Program Components Elements Needed to Address Components

Fire Code Enforcement

• Proposed construction and plans review • New construction inspections • Existing structure/occupancy inspections • Internal protection systems design review • Storage and handling of hazardous materials

Public Fire & Life Safety Education

• Public education • Specialized education • Injury & Illness Prevention • Juvenile fire setter intervention • Prevention information dissemination

Fire Cause Investigation • Fire cause and origin determination • Fire death investigation • Arson investigation and prosecution

Fire & Life-Safety Code Enforcement

Preventing fires or minimizing the impact of fires by requiring specific fire protection features in buildings is

much more effective than relying on the availability and capabilities of a fire department response after the

ignition of a fire. A strong fire code enforcement program, bolstered by local adoption of current state,

national, and international building and fire codes, is critical to improving fire safety in a community.

Wisely, both the City of Aberdeen and City of Hoquiam have adopted the same standards and fire codes, as

shown in the following figure:

Figure 63: Adopted Fire & Building Codes in Aberdeen & Hoquiam (2018)

Fire Codes City of Aberdeen City of Hoquiam

Adopted fire codes 2015 International Fire Code 2015 International Fire Code

State amendments WAC 51-54A (2015) WAC 51-54A (2015)

Local codes/ordinances None None

Local amendments None None

Sprinkler ordinance in place No No

As shown, neither city has adopted local ordinances, amendments, or a sprinkler ordinance. Washington

Administrative Code (WAC) Chapter 51-54A is intended as an amendment to the 2015 International Fire Code

(IFC), and addresses a wide range of issues.

Existing Occupancy Inspection Programs

Existing property inspections to find and eliminate potential life hazards are an essential part of the overall

fire protection system. These efforts are most effective when completed by individuals having the proper

combination of training and experience, and when completed with appropriate frequency. Both AFD and HFD

conduct existing occupancy inspections for schools on an annual basis. Other commercial occupancies are

inspected at different intervals. The following figure lists the basic features of each fire department’s

inspection program.


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Figure 64: Occupancy Inspection Programs at AFD & HFD

Inspection Program Elements Aberdeen FD Hoquiam FD

Inspection program Initially by Fire Marshal (AC) Initially by Fire Marshal (AC)1

Inspection frequency 3-year rotation 1-year rotation

Schools Annually Annually

Company inspections Ongoing, throughout year Ongoing, throughout year

Personnel assigned to program Fire Marshal & crews FM & Captains at Station 2

Inspection records maintained Emergency Reporting System® Emergency Reporting System®

Specialty inspection fees None None

Citation process City Code Enforcement staff with input from Fire Marshal

City Code Enforcement staff with input from Fire Marshal

Court utilized Aberdeen Municipal Court Hoquiam Municipal Court

1This position is currently unfilled at the Hoquiam Fire Department.

Utilizing fire suppression personnel who are adequately trained in basic fire inspection practices can be

appropriate and effective in some instances. Doing so has the benefit of increasing inspection capabilities and

frequency. Furthermore, it provides excellent opportunities for engine crews to acquire building

familiarization and conduct pre-incident planning.

New Construction Plans Review & Inspection

New construction and development plan reviews is the foundation of an effective fire code enforcement

program. Once buildings and/or developments are completed, the fire department assumes the responsibility

for protecting the structures forever. Both cities and fire departments have a fundamental interest and duty

to ensure all buildings and developments within their respective jurisdictions are properly constructed and

protected. The next figure lists each department’s participation in this area.


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Figure 65: AFD & HFD New Construction Plans & Inspections

Program Elements Aberdeen FD Hoquiam FD

FD consulted on new construction Fire code by AC/Fire Marshal With building inspector

Proposed occupancy changes Yes With building inspector

Proposed tenant improvements Yes With building inspector

Fire & life-safety plan review Yes With building inspector

Sign-off on new construction Yes With building inspector

Fees for inspections or reviews Building permit/fee process1 Building permit/fee process1

Special risk inspections None None

Storage tank inspections On install or removal (1,000 gal.) No

Key-box entry program Knox-Box Knox-Box

Hydrant flow records City Water Department City Water Department

1Fees collected by city; not direct revenue to the fire department

The Fire Marshals of both fire departments work cooperatively with their respective city Building Inspection

Departments. The Aberdeen Building Department regulates the City’s code administration, permitting, and

plan review, along with enforcing plumbing and mechanical codes. The Hoquiam Building Department

provides similar functions.

Fire Sprinkler Systems in New Construction Discussion

Mandating installation of fire sprinkler systems in new and remodeled residential construction is a

controversial issue in many jurisdictions. The 2009 International Residential Code (IRC) mandated the

installation of fire sprinkler systems in all one- and two-family residential structures and dwellings. However,

state and local jurisdictions regularly amend building codes to meet local needs. Developers, building industry

associations, and lobbyists have taken the fight against requiring residential fire sprinklers in new construction

to the state and local level, asserting cost-prohibitive installation, ongoing maintenance costs, and overall

negative costs versus benefits. Conversely, life-safety advocates, fire service associations, and insurance

groups continue to push for formal adoption of residential fire sprinkler installations, citing scientific evidence,

advances in cost-effective sprinkler system technology, and real-world experiences where fire-sprinkler

activations saved lives and property.

Scientific and real-world experience has proven the effectiveness and speed of fixed fire-sprinkler systems in

containing and/or extinguishing incipient fires in commercial and residential structures. As more residential

systems are installed, the number of fire incidents involving residential sprinkler installations should bring

clarity and consensus as to their cost effectiveness and safety.


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Fire-Cause Investigation

Accurately determining the cause and origin of a fire is an important element of a fire prevention program.

When fires are set intentionally, identification and/or prosecution of the responsible offender is critical in

preventing additional fires and potential loss of life. Further, identifying cause and potential trends enables

the fire department to provide specific public information and fire prevention education to prevent

reoccurrence. The next figure lists the various investigative components in each department.

Figure 66: AFD & HFD Fire-Cause Investigation Components

Investigation Program Elements Aberdeen FD Hoquiam FD

Fire origin & cause determination Done on all fires In conjunction with PD

Arson investigation & prosecution Referred to law enforcement for further investigation

Referred to law enforcement for further investigation

Investigation training provided Basic training in-house; part of Officer Development program; advanced training externally

Basic training in-house; part of Officer Development program; advanced training externally

Responsible for investigations Supervised by Fire Marshal (AC) Chief & five investigators

Investigator training/certification Training varies; no certifications Training varies; no certifications

Local FIT1 membership No local; AFD assists when asked No local team

Process for juvenile suspects Done by law enforcement & Juvenile Justice Dept.; Juvenile Fire Setters Program

None

Liaison with law enforcement Yes (APD) Yes (HPD)

Scene control practices in place Yes Yes

Photographer available Taken by investigators Taken by investigators

Adequate equipment issued Basic investigation equipment Basic investigation equipment

Evidence collection process Basic procedures Basic procedures with HPD

Release required for scene entry Yes No

Records of all incidents made Fire or investigation report Fire or investigation report

File, record, & evidence security Files in secure location; evidence lockers utilized

Files in secure location; evidence lockers utilized

1Fire Investigation Team

Within both fire departments, some basic investigation training is provided in-house, while other training is

obtained through their respective Officer Development Programs and through external sources. None of the

investigators have formal certifications as outlined in NFPA 1033: Standard for Professional Qualification for

Fire Investigators.25 This standard identifies the minimum job performance requirements necessary to serve

as a Fire Investigator in all investigations, including outside, vehicle, and other non-structure fires.

25 NFPA 1033: Standard for Professional Qualifications for Fire Investigator, 2014 Edition.


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Data Collection & Analysis

Both departments use the Emergency Reporting System® application for documenting emergency incidents,

fire cause and arson, occupancy records, and inspection records. The following figure lists the elements in

data collection and analysis at both fire departments

Figure 67: AFD & HFD Data Collection & Analysis

Data Collection Elements Aberdeen FD Hoquiam FD

Electronic records maintained ERS application ERS application

Information collected in following areas:

Fire incidents by cause/location Yes Yes

Time-of-day & day-of-week Yes Yes

Method of alarm Yes Yes

Dispatch times Yes Yes

Response times Yes Yes

Data analyzed & used for planning No No

Reports made & distributed In annual report When requested

FTEs for data collection & analysis Assorted members; FC, AC, & BCs do analysis as needed

Assorted members; FC, AC, & officers analyze as needed

Although each fire department collects the minimum necessary prevention-related data in their respective

records management systems, the data is seldom, if ever analyzed and used for planning purposes. This should

be expected, because of the lack of staff at both fire departments who are assigned to prevention and life-

safety activities and programs.

Public Education & Prevention Programs

Providing fire, injury, illness prevention, and life safety education to the public is an essential component of a

comprehensive fire department’s life-safety program. Public education provides the best opportunity to

minimize the tremendous negative impact of fires, serious injuries, and illnesses to the community. At both

the Aberdeen Fire Department and Hoquiam Fire Department, public education and outreach is assigned to a

Captain within the purview of the department’s Fire Marshal. Details of each department’s education and

outreach programs are described in the following figure.


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Figure 68: AFD & HFD Public Information & Education Programs & Activities

Program Elements Aberdeen FD Hoquiam FD

Pub Ed/information officer One Captain assigned at each department

Public education in the following areas:

Calling 9-1-1 Yes (schools, station tours, etc.) Yes

EDITH (exit drills in the home) Yes (schools, station tours, etc.) Yes

Smoke alarm program Provide free smoke alarms & installation

Carbon monoxide program No Yes; 1 loaner detector

Fire safety No curriculum; firefighters answer specific questions from public

Injury prevention Free bike helmets to children No

Fire extinguisher use Free training to businesses Yes

Fire brigade training Not applicable

Elderly care & safety None currently; previously for low-income apartment complexes

Curriculum used in schools Fire safety K–3rd grade Fire safety Preschool–5th grade

Babysitting classes Not offered

CPR courses, BP checks offered Free BP checks at all fire stations; no CPR classes

Publications available to public Yes

Bilingual info available Various public education brochures

Annual fire prevention report distributed to community

Part of the annual report No

Wildland interface education None

As shown in the preceding figure, both fire departments provide the typical public education programs seen

in many fire departments throughout the U.S. Neither provides formal fire safety, injury prevention, or elderly

care programs to the public. The Aberdeen Fire Department includes a section on fire prevention in their

annual report, but Hoquiam does not.

Community Risk Reduction Planning

Recently, U.S. fire departments have begun to recognize the value of Community Risk Reduction (CRR)

programs that go beyond traditional fire prevention activities. Some have gone so far as to re-name their “fire

prevention” divisions to “Community Risk Reduction Divisions.”

Regardless of the name, fire departments should be able to accurately identify the various potential

community risks before developing prevention programs. This is not meant to imply diminishing the focus and

importance of addressing the fire problem in a community, rather it affords an opportunity to identify and

mitigate additional community risks through targeted prevention activities.


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The first step in developing an effective CRR plan is identifying those risks unique to a particular community

by conducting a community risk assessment. A key component of the assessment process is the collection and

analysis of incident data. However, firefighters, officers, and inspectors can also provide substantial anecdotal

information on the various risks found within their respective response-areas.

Neither AFD nor HFD appear to have completed a

comprehensive community risk assessment (CRA) and

subsequent CRR plan. Both departments and respective

communities would likely benefit from adopting a CRR

plan. The process does not have to be complex, and could

consist of simply identifying the most prevalent risks and

developing strategies to mitigate those risks.

Beginning with the identification of risks (CRA), the

accompanying figure describes the six steps of a

comprehensive Community Risk Reduction planning

process.

Effect of Prevention Activities on WSRB Rating

The Washington Survey & Rating Bureau (WSRB) has assigned a Protection Class rating of 5 to both Aberdeen

and Hoquiam. WSRB assigns each community a Protection Class rating of 1–10, where 1 indicates exemplary

fire protection capabilities, and 10 indicates that the capabilities (if any) are insufficient for insurance credit.

To determine a community’s Protection Class, the Washington Survey & Rating Bureau objectively evaluates

four major areas:

• Fire department capabilities (i.e., staffing, apparatus, deployment, training, etc.).

• Water supply.

• Emergency communications systems.

• Fire safety programs (i.e., fire code enforcement, public education and building code enforcement).

It is evident that fire safety programs are a major component of the WSRB evaluation to determine a

community’s Protection Class.

Final Discussion

The various prevention and life-safety fire codes and related prevention programs and activities are nearly

the same between the Cities of Aberdeen and Hoquiam, as well as the Aberdeen and Hoquiam Fire

Departments. In the event of consolidation, the similarities between the two cities and departments should

enable a much simpler integration process than might be seen in other communities.

Figure 69: Six Steps of a CRR Plan


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As mentioned previously, both AFD and HFD provide the typical public education programs seen in many fire

departments throughout the U.S. Despite limited career and dedicated public outreach staffing, both have

attempted to address some of the fundamental community outreach elements.

While there are a number of commercially available public safety curriculums, lesson plans, and teaching aids

for prevention programs, the effectiveness of some of these have not necessarily been proven. An important

part of a comprehensive life-safety program would be to develop performance measures to monitor progress

and determine the effect of any such programs utilized. The NFPA 1035 standard describes the minimum job

performance requirements for public fire and life-safety educators, public information officers, youth

firesetter intervention specialists, and youth firesetter program managers.26 This standard should be

considered in a future consolidated department.

Recommendations:

• In the event that AFD and HFD consolidate, strong consideration should be given to creating a

“Community Risk” or “Life-Safety” division within the organization.

▪ A Fire Marshal should be appointed to oversee it. The division should be staffed to sufficiently

address the various elements of a prevention and life-safety program.

▪ If such a division is created, it should be staffed with four positions: 1–Fire Marshal; 2–

Inspector/Investigators; 1–Plans Reviewer; and 1–Public Educator/Public Information Officer.

• On-duty fire crews should continue to be utilized to conduct inspections and develop pre-fire plans.

• Members assigned to investigate all types of fires, should receive training and certification in

accordance with NFPA 1033, as well as NFPA 921: Guide for Fire & Explosion Investigations. These

standards provide thorough information for conducting scientific-based fire investigations and the

education necessary for investigators.

• In the future, if adequately staffed, the new division should begin the process of completing a

Community Risk Assessment and subsequent Community Risk Reduction plan.

• It must be noted that it would not be necessary to fulfill all positions within the new division

immediately. Positions could be added incrementally over a period of two or three years, if the

availability of funding is insufficient.

26 NFPA 1035: Standard on Fire and Life Safety Educator, Public Information Officer, Youth Firesetter Intervention Specialist and

Youth Firesetter Program Manager Professional Qualifications, 2015 edition.


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Communications As a part of this project, ESCI has reviewed a number of elements that comprise the overall emergency

communications system in Aberdeen, Hoquiam, and Grays Harbor County. It is without dispute that

emergency communications is a critical component of an effective fire and emergency medical services

delivery system.

At a minimum, a sufficient communications system must be able to receive calls from the public for assistance;

quickly determine the nature of the problem; and dispatch appropriate resources to the proper location. In

addition, emergency vehicles, apparatus, and personnel must have the ability to communicate with the

dispatch center, along with reliable communications between apparatus, hand-held units, and other public

safety agencies.

Emergency Communications Center

The Grays Harbor Communications Center (GHCC) is located in Aberdeen, and housed in the basement of the

East Campus of the “old hospital.” It serves as the County’s primary public safety answering point (PSAP) and

dispatch agency for both law enforcement and each of the fire departments and fire districts throughout Grays

Harbor County.

Figure 70: Communications Center Organizational Structure

Communication Elements Grays Harbor Communications Center

Organization Independent government entity

Governance Administrative Board; Operations Board

Population served Approximately 72,697 (2017)

Number of agencies served 39 public safety agencies

Mission statement, goals, & objectives Yes

Surrounding PSAPs Jefferson, Mason, Thurston, Pacific Counties

Governance & Management

GHCC is an independent government organization created through interlocal agreements with each of the

municipalities and Grays Harbor County to provide emergency communications services. The organization is

overseen by an Administrative Board comprised of elected officials from the participating jurisdictions. The

agreement also established an Operations Board with representation from local public safety agencies—

including the Aberdeen and Hoquiam Fire Chiefs. The organization is managed effectively by an Executive

Director and Deputy Director.


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Funding

The GHCC appears to be adequately funded through annual user-fees collected from each of the jurisdictions,

along with local and statewide access-line taxes. In addition to the agencies in Grays Harbor County, Pacific

County Fire District #5 uses 911 taxes collected within its jurisdiction towards communications costs.

Communications Center Staffing

GHCC is staffed with approximately 20 employees who serve in the position of Telecommunicator. This

position serves a dual-role by functioning as both call-taker and dispatcher. Of the twenty, four are assigned

as Supervisors.

Figure 71: Grays Harbor Communications Center Staffing

Staffing Elements GHCC

Position description Telecommunicators (dual-role)

Work schedule 4 days on/3 days off

Minimum staffing 3/day; 2 on after 2 am

State requirements for staff None; follow APCO guidelines

Union representation Teamsters Local #252

Training program 6-week in-house course plus1

Medical pre-arrival instructions training Yes

1New Telecommunicators also have one-on-one training in-house by a qualified Trainer

Telecommunicators work four 10-hour days per week. Minimum daytime staffing at GHCC is three personnel,

with two on duty after 2:00 a.m.

Telecommunicator Training

Telecommunicators are not required to meet any state requirements, and attend a 6-week in-house training

course conducted by qualified GHCC staff followed by 5–6 months of one-on-one training with an assigned

qualified Trainer. Training follows the Association of Public-Safety Communications Officials (APCO) standards.

In addition to their public safety field radio communication educations, Telecommunicators are also trained

in first aid and Cardiopulmonary Resuscitation (CPR).

Software & Equipment Upgrades

The center is previously utilized an older version of a Northrup Grumman public safety computer-aided

dispatch (CAD) application, but in 2017 upgraded to the Motorola® Spillman Flex CAD software.

The GHCC upgraded its public safety recording system in 2015. This has enabled more reliable digital capture

of radio and telephone communications, which can be used later for quality assurance, evidentiary, and other

purposes.


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Performance Standards

GHCC has established basic performance standards, standard operating procedures (SOP), and evaluates its

communications and dispatch activities on a regular basis. A quality improvement process is in place to

monitor the performance and activities of the GHCC Telecommunicators. The next figure shows the basic

elements of GHCC’s performance standards.

Figure 72: Communications Performance Standards

Standard Grays Harbor Communications Center

Performance standards established Yes

Call-answering time-standard 10 seconds or less

Call-processing/dispatch time-standard No, but attempt 60 seconds for EMS

Dispatch activities evaluated Yes

By time/day/month Yes

By incident type Yes

Standard operating procedures in place Yes

Quality assurance program in place Yes

As shown in the preceding figure, GHCC maintains performance standards for both call answering and call

processing. Standard Operating Procedures are in place, with quality assurance mechanisms.

Communications Center Operations

The following figure lists the volume of fire and EMS incidents dispatched by GHCC during 2016 and 2017.

Figure 73: GHCC Fire & EMS Call Volumes (2016 & 2017)27

Department 2016 Calls

Dispatched by GHCC 2017 Calls

Dispatched by GHCC Difference

Countywide Fire & EMS 18,707 17,965 -742

Aberdeen FD only 5,458 5,164 -294

Hoquiam FD only 3,178 2,910 -268

AFD & HFD Totals: 8,636 8,074 -562

As shown in the preceding figure, in 2016, AFD and HFD combined, represented approximately 46 percent of

the total fire and EMS incidents dispatched by GHCC; while in 2017, the two fire departments represented

about 45 percent of the incidents dispatched.

Between 2016 and 2017, calls in which AFD was dispatched declined by about 5.4 percent, while HFD’s call

volumes decreased by approximately 8.4 percent. Countywide, the number of fire and EMS calls dispatched

by GHCC decreased by nearly 4 percent between 2016 and 2017.

27 Source: Grays Harbor Communications yearly statistics reports.


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General Dispatch Procedures

Currently, both AFD and HFD are dispatched by department. For example, when a single-unit EMS call for AFD

is dispatched, the call is heard and received by all personnel at both stations. Thus, all on-duty personnel are

interrupted during normal sleep hours and other times on incidents that may require only a single-unit

response. An alternative to this method could be a unit-based dispatch protocol in which only those units

necessary for the response are notified, and not heard by all other personnel. According to GHCC, unit-based

dispatching is technically feasible, but would require some planning and policy development.

Criteria Based Dispatching

GHCC’s Telecommunicators provide Criteria Based Dispatching (CBD) utilizing the King County Emergency

Medical Dispatch (EMD) program. The program includes medically approved emergency medical dispatch

triage guidelines for telecommunicators, a comprehensive EMD training program, quality improvement

measures, and ongoing research. Additionally, Telecommunicators can provide systematic pre-arrival

instructions to callers in medical emergencies. The EMD program has been approved by the Grays Harbor

County Medical Program Director.

Alarm Systems

The Grays Harbor Communications Center currently does not monitor fire alarm systems anywhere within its

jurisdiction.

Records Management & CAD Data

GHCC records the significant fire apparatus and medic unit timestamps into its CAD system (e.g., time call

received; unit dispatched, began response, arrived at scene or cancelled; medic unit transport times; etc.), as

well as the incident address, unit number, and incident-type description. The back-in-service time is only

recorded when the fire department unit advises GHCC. The CAD system interfaces with both AFD’s and HFD’s

respective records management software.

Mission, Values, & Vision

Grays Harbor Communications has established strong mission, values, and mission statements distributed to

all employees in the organization. These consist of the following:

Mission Statement

“Grays Harbor Communications E-911 is the tie that binds the citizens of this county with police, fire, and

medical services in their time of need. We serve with integrity, compassion, and efficiency on each and every

call.”


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Value Statement

• H—Honesty

• E—Excellence

• A—Accountability

• R—Respect

• T—Teamwork

Vision Statement

“Grays Harbor Communications Center will remain known for quality customer service, integrity and

professionalism. We will be known for good stewardship, strong partnerships, and innovation. We will employ

and develop highly effective professionals in an employee friendly, service focused environment.”

Communications Center Discussion

ESCI believes that GHCC is a well-run facility with state-of-the-art radio communications and telephone

equipment and software. In a previous visit to GHCC, it was evident that the Center’s management has

substantial knowledge, experience, and expertise; and is up-to-date on current issues involving public safety

communications. Of note, is that the leadership and staff of the GHCC have been the recipients of multiple

state and national awards from the Association of Public-Safety Communications Officials (APCO) and other

organizations. ESCI did not identify any significant communication or other issues regarding GHCC capabilities,

which would obstruct a potential merger of the Aberdeen and Hoquiam Fire Departments.

Fire Public Safety Radio Network

In 2015, GHCC engaged ADCOMM Engineering Company (ADCOMM) to review the existing fire department

radio communication system and radio coverage. The study was to include ADCOMM’s findings, along with

options and recommendations for making improvements to the radio systems throughout Grays Harbor

County.

The study found that the various fire departments served by GHCC utilized 17 distinct VHF radio frequencies

used in combination with repeated and simplex channels. Because of the large number of frequencies, it was

difficult for dispatchers to effectively communicate with the various fire agencies. This was even more

problematic during times of concurrent incidents.

ADCOMM recommended consolidating the existing fire VHF into a “…unified communications system

approach” with one countywide simulcast fire dispatch channel, and multiple regional operations channels.

The recommendations in the report went beyond that, and contained specific details on upgrading repeater

sites to improve radio coverage throughout Grays Harbor County.


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Fire Department Mobile Communications

In addition to a dependable and capable emergency communications system, fire apparatus and medic units

must have the necessary mobile communications equipment and resources. With the exception of radio

coverage limitations in some areas, communication with GHCC in Aberdeen and Hoquiam, and throughout

some of the outlying jurisdictions appears to be adequate in most cases—although there remains room for

continued improvement. GHCC continues to evaluate issues with radio coverage, and consistently looks for

options to address deficits throughout the system.

Mobile Data Computer Systems

Through a federal grant to the Ocean Shores Fire Department, GHCC was able to purchase equipment and

software to develop the infrastructure necessary to install Mobile Data Computers (MDC) or Mobile Data

Terminals (MDT) in emergency vehicles. The grant did not include funds to purchase equipment for mobile

units. Currently, only law enforcement has installed terminals in their vehicles, and none of the fire

departments in Grays Harbor County utilize MDCs on their apparatus or medic units.

Automatic Vehicle Location

Neither the Aberdeen or Hoquiam Fire Departments or other fire and EMS organizations in Grays Harbor

County are utilizing Automatic Vehicle Location (AVL) technology on their apparatus or medic units. Although

the use of AVL within the city limits would probably have little or no value, there would likely be benefits to

having AVL on the medic units for responses outside the cities and during out-of-town transports. This would

enable GHCC to track the location of the medic units and their proximity to incident locations and their

distance from the hospital; thus enabling them to determine when they might be in service.

Cell Phone Coverage

Reliable cell-phone service is particularly important for AFD and HFD, as it is the primary means by which their

ALS medic units contact the hospital for medical control and other purposes during patient transports. The

major cell-phone vendors in Grays Harbor County are Verizon and U.S. Cellular. Adequate cell coverage varies.

In Aberdeen, Hoquiam, and some of the more populated jurisdictions, cellular service is adequate, but

decreases in other areas—particularly those that are more remote.

Unit-Based Dispatching

The development of unit-based dispatching for the cities of Aberdeen and Hoquiam is technically feasible, and

has been discussed in the past, but never actively pursued by the two fire departments. ESCI includes

recommendations to implement this successfully.


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Mobile Data Terminals/Computers

The use of Mobile Data Terminals or Mobile Data Computers in fire apparatus and medic units, along with

comprehensive software and integration with the CAD system, would have substantial value to the fire

departments. GHCC’s CAD system is capable of integration with mobile devices and software. Depending on

the software selected, the following are just a few examples of features often found in mobile fire software:

• Incident location mapping with visual (and sometimes audio) navigation to the scene.

• Additional live incident information available from the CAD system.

• Ability to view the status of other responding apparatus and medic units.

• Access to pre-plans and occupancy data.

• Integration with the fire department records management system.

• Non-verbal vehicle-to-vehicle communication.

Recommendations for Unit-Based Dispatch:

• Identify individual response zones by station and first- and second-due medic units, engines, ladder

trucks, and other apparatus. Utilize GIS software to develop the boundaries of each zone.

▪ Apparatus and medic units located at each station should be assigned a permanent radio call-

sign/unit number; regardless of the specific vehicle. For example, whichever engine is located at

Station #2, would always be Engine 2, regardless of what particular vehicle has been assigned.

• Develop dispatch protocols for each response zone, based on incident locations and incident types, as

well as those requiring a Battalion Chief response.

• Work with GHCC to determine what CAD updates will be required to effectively implement the

dispatch process.

• Develop standard operating guidelines that ensure that GHCC is informed and aware of any apparatus

that are moved up to another station or out-of-service.

▪ If certain engines and medic units continue to be cross-staffed, it will be important to have a

process to ensure that GHCC is aware that when one vehicle is on a call or out-of-service, that the

other is unavailable for a response.

Recommendations for MDTs and AVL:

• Install MDCs in each apparatus:

▪ This can be phased in over a long-range capital improvement plan.

• Add Automatic Vehicle Location (AVL) technology on each of the medic units:

▪ This cannot be phased in over a period of time, but can be provided for in a long-range capital

improvement plan such that once the funding is available, it can be fully implemented.


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Planning for Fire Protection & EMS The fire service nationally creates and gathers large volumes of data in the performance of their duties, both

from their emergency response activities and in preparation for and anticipation of large-scale disasters.

However, many of these same organizations do not analyze the data sufficiently to evaluate effectiveness and

adjust as necessary to become more effective or efficient. Both Aberdeen and Hoquiam Fire Departments are

no exception.

There are two major types of planning fire departments should employ: emergency preparedness and

response planning, and administrative planning for the future of the organization. Each of these are described

in the following pages, as well as how AFD and HFD fare in these major categories.

Emergency Preparedness and Response Planning

As emergency response agencies, fire departments must thoroughly understand their community risks. These

risks must be quantified. There are numerous risk/consequence or risk/probability matrices available, but,

regardless of the labels on the axes, they usually fall into one of the quadrants in the following figure.

Figure 74: Risk (Impact/Probability) Matrix28

28 Adapted from “Risk Impact/Probability Chart: Learning to Prioritize Risks.” Risk Impact/Probability Chart. N.p., n.d. Web. 22 June 2016.


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As the risk is quantified generally into one of the four quadrants, a decision is made based on the level of risk.

Communities cannot create a zero chance of a risk, which would indicate there is no risk. Likewise, there

cannot be 100 percent chance of a risk because that would make it a certainty, not a risk. Every community

must come to grips with an acceptable level of risk, recognizing that it is improbable, impractical, and

unaffordable to eliminate risk in a community. Using a matrix helps fire department officials determine

approximately where the line is between an acceptable and unacceptable risk. It is important to note that for

the individuals directly involved in an incident it is never considered an acceptable risk. The quadrants in the

previous figure may be defined as follows:

• Low impact/low probability—Risks in the bottom left corner are low level with acceptable

consequences if the incident occurs. These are considered low risk, which is often considered

acceptable and requires no further action.

• Low impact/high probability—Risks in the top left corner are considered moderate risk—if the

incident happens, the fire department can usually handle it with existing resources. However, effort

should be given to reduce the likelihood that these incidents occur. This is where community risk

reduction strategies pay significant dividends to a community.

• High impact/low probability—Risks in the bottom right corner are significant if they do occur, but

they are very unlikely to happen. Risks in this quadrant are referred to as moderate risk and are prime

candidates for training and contingency planning. A fire department may spend time and energy

preparing for such an incident and may even acquire specialized equipment and other non-staff

resources to prepare for this risk. These risks also lend themselves well to community risk reduction

strategies, such as public education, community engagement, and code enforcement.

• High impact/high probability—Risks toward the top right corner are critical and are viewed as high

risk. These should be the highest priorities for the fire department and for the community. Aggressive

action is required, such as staffing for these risks, equipping for these risks, and engaging the

community in risk reduction and preparedness.

Both fire departments have identified and developed pre-incident plans for target hazards in their respective

communities. Both cities rely upon the Grays Harbor County Emergency Management Office for the

emergency management function and coordination. The departments should encourage the Grays Harbor

County Emergency Management Office to conduct a commodity flow study of the hazardous materials

transiting the region by rail, truck, and ship through the county. Both AFD and HFD rely upon information

provided by the Local Emergency Planning Committee (LEPC) for hazardous materials generators and haulers

with Tier II reportable quantities within their own jurisdictions. Neither fire department has a Hazardous

Materials Technician response capability.

A key component of response planning is developing a critical task analysis and deployment plan for various

incident types within the community. These elements are critical elements of a Standards of Cover, the

creation of which is an industry best practice. Neither fire department has a Standards of Cover.


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Applying the principles of risk analysis and practical emergency response strategies and priorities, the fire

departments can address, in general terms, how they will respond to a variety of emergency incidents that

may occur. Developing such a document serves to reinforce the department’s approach to mitigating

emergencies and helps to inform both policymakers and the community’s citizens about the differences in

response, such as to a single-family house fire as opposed to an apartment building or a commercial/industrial

occupancy. A Standards of Cover also accomplishes an important safety function to the extent that they serve

to remind both firefighters and their chief officers of the limits of what can be prudently accomplished at an

emergency scene. The creation and the promulgation within the two departments of such a document can

have lasting effectiveness on the agencies.

Recommendations:

• Both cities should encourage GHCEMD to conduct a commodity flow study of transit risks by rail,

highway, and navigable waterway.

Administrative Planning

Administrative planning is often an underappreciated process. It does not have the urgency of response

planning and is therefore easy to put off to a later date. Many fire departments do not fully appreciate the

importance of these plans. There are multiple types of administrative planning devices. The most common

are master planning, strategic planning, capital improvement planning, apparatus and equipment

replacement planning, and personnel planning. Some elements of capital improvement planning, apparatus

and equipment replacement planning, and, to a lesser extent, personnel planning are included in master

plans.

A master plan is essentially a long-range plan of the community served by the fire department. It identifies

the current conditions that exist in the community and assesses land use and development plans, as well as

the urban growth boundaries for potential future growth. Population and service demand growth are

projected at least 10 years into the future, and the impact of that growth is identified. Recommendations that

address critical infrastructure gaps or gaps that will occur if the projected growth is not responded to

appropriately and in a timely manner are made in a master plan. Neither fire department has a master plan.

A strategic plan, as briefly described earlier, is of shorter duration, typically three- to five-years, and is

internally focused. In this type of planning process, citizen-stakeholders are interviewed to identify their

attitudes, priorities, and concerns as they relate to the department. Internally, a SWOT analysis (Strengths,

Weaknesses, Opportunities, and Threats) is conducted. Reconciling the citizen-stakeholder feedback with the

internal SWOT analysis results provides a clear picture of the organization’s environment. This environmental

scan shapes the strategic initiatives a department should focus on. Within each strategic initiative, multiple

goals and subordinate objectives are established, complete with timelines, outcome measures, and

responsible party assignments. A strategic plan is a three- to five-year internal work plan. Neither fire

department has a strategic plan.


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Both fire departments have a 25-year replacement schedule that reflects a general assumption of the

approximate life expectancy of its apparatus. These schedules are not reflective of unique conditions that

each unit may experience during its useful life, much less attach a revenue stream to their replacement. A tool

ESCI recommends be used to rate each piece of equipment on its own condition as a formulaic equation is

reflected in the following figure. This allows the agencies to better predict when a unit is approaching the end

of its service life.

Figure 75: Proposed Apparatus Replacement Formula

Evaluation Components

Points Assignment Criteria

Age One point for every year of chronological age, based on in-service date.

Miles/Hours One point for each 10,000 miles or 1,000 hours.

Service 1, 3, or 5 points are assigned based on type of service unit receives. (For instance, fire pumpers would be given a 5 because it is classified as severe duty service.)

Condition This category takes into consideration body condition, rust interior condition, accident history, anticipated repairs, etc. The better the condition, the lower the points assignment.

Reliability

Points are assigned as 1, 3, or 5 depending on the frequency that a vehicle is in the shop for repair. (For example, a 5 would be assigned to a vehicle in the shop two or more times per month on average, while a 1 would be assigned to a vehicle in the shop an average of once every three months or less.

Point Ranges Condition Rating Condition Description

Under 18 points Condition I Excellent

18–22 points Condition II Good

23–27 points Condition III Considered Replacement

28 points or higher Condition IV Immediate Replacement

The proposed apparatus schedule factors the key elements to consider in replacing apparatus: age, engine

hours or miles, service use or type, general condition, and the frequency of unscheduled service required. This

should be coupled with the recommendations found in National Fire Protection Association (NFPA) 1911:

Standard for Automotive Fire Apparatus; Annex D Guidelines for First-Line & Reserve Fire Apparatus.

Essentially, this standard recommends that heavy apparatus (engines, ladders, and tenders) should be in front

line service for a maximum of 15 years and up to a maximum of 10 additional years in reserve before being

replaced. The purpose of this recommendation is to ensure that contemporary safety elements are built into

the apparatus, such as rollover protection or seatbelt warning systems.

Recommendations:

• If the two fire departments stay separate, they should each conduct a master plan and a follow-on

strategic plan. If the agencies integrate, there should be one combined master plan and one combined

follow-up strategic plan after integration.

• Both agencies should adopt apparatus replacement scoring criteria such as proposed in the previous

figure.

• Both agencies should work with the cities to identify a funding mechanism to replace these apparatus

once they approach replacement criteria.


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EMS Support & System Oversight The delivery of Emergency Medical Services (EMS) and ground emergency medical transport (GEMT) is the

major element of those emergency services provided by both the Aberdeen Fire Department and the Hoquiam

Fire Department. Therefore, EMS must be evaluated carefully to ensure appropriate and uninterrupted EMS

in the event of a consolidation.

EMS System Components

A comprehensive Emergency Medical Services delivery system is comprised of a number of important

components—each of which must function sufficiently, in order for the overall system to achieve maximum

effectiveness. Since both AFD and HFD operate in Grays Harbor County, most of the EMS system

components—such as patient-care protocols; Medical Program Director; and clinical facilities—are the same.

Therefore, the following section describes each of primary components of the EMS system in Aberdeen,

Hoquiam, and Grays Harbor County.

EMS Administration & Oversight

In Washington State, the Department of Health (DOH), Office of EMS & Trauma Prevention is the government

agency responsible for licensing EMS organizations and certifying EMS providers.

The West Region EMS & Trauma Care Council, Inc. is a non-profit organization funded primarily through a

contract with DOH. The Council is empowered by legislative authority (RCW 70.168.010–70.168.900 & WAC

246.976) to plan, develop, and administer the EMS and trauma care system in more than four counties in

western Washington.

Based in Aberdeen, the Grays Harbor EMS & Trauma Care Council (GHEMS) is also a non-profit organization.

GHEMS is responsible for training and coordinating prehospital providers in Grays Harbor and North Pacific

counties. The Council membership is comprised of representatives of local fire departments, law

enforcement, hospitals, interested citizens, and the Medical Program Director (MPD).

Recommendations:

• Appoint an EMS Battalion Chief to oversee all EMS-related administrative, logistical, quality

management, and other relevant components; as well as represent the department on various local,

regional, and state EMS-related committees.

▪ Provide administrative staff so as to ensure sufficient support to the EMS Battalion Chief.


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Medical Direction & Control

Medical direction is provided in accordance with the prehospital care protocols (off-line medical control)

promulgated by the Grays Harbor County Medical Program Director, Dr. Julie Buck. Dr. Buck specializes in both

Internal Medicine and Emergency Medicine, and works in the Emergency Department (ED) at Grays Harbor

Community Hospital. Online medical control is provided by the ED physician on duty at GHCH.

The MPD is responsible for various elements of the EMS system throughout Grays Harbor County in

accordance with Revised Code of Washington (RCW) 18.71.212. The specific duties of MPDs are described in

detail in Washington Administrative Code (WAC) 246-976-920.

The MPD is required by WAC to fulfill specific duties for all of EMS organizations and certified personnel

operating in Grays Harbor County. Should AFD and HFD proceed with consolidation, the new organization will

represent the largest EMS provider with the most EMS service-demand in the County. In this case, it will be

important for the MPD to take a greater role with the consolidated fire department.

Recommendations:

Develop a contractual arrangement with the MPD that requires additional responsibilities, to include but not limited to: • Participation in internal EMS quality management activities, including ePCR reviews and feedback to

individual EMTs and Paramedics.

• Occasional ride-alongs with each of the medic units on each shift.

• Assistance with developing CME and training topics based on the results found in the EMS QM

process.

• The contract should allow for flexibility in the MPD’s time, so as to enable her to fulfill her other

responsibilities at both the hospital and with the other EMS organizations in the County.

• The new consolidated fire department should provide the MPD with fair and equitable compensation

in exchange for her expanded services.

• Consideration should be given to issuing the MPD a fire department uniform, personal protective

equipment, and a portable radio with the appropriate fire frequencies. The uniform should be clearly

marked with the label: “EMS Physician.”


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Communications & Emergency Medical Dispatching

The Grays Harbor Communications Center serves as the County’s primary 911 PSAP, and is staffed with trained

Telecommunicators who utilize the King County (WA) Criteria-Based Dispatch (CBD) program. This is an

Emergency Medical Dispatch (EMD) system based on information collected from callers. The program also

enables Telecommunicators to give pre-arrival instructions (e.g., CPR, etc.) to callers. GHCC does not have a

system in place that provides alternatives for non-emergent calls that do not warrant dispatch of fire and EMS

units. None of AFD’s or HFD’s medic units are equipped with mobile data computers (MDC).

Hospital Communications

Both fire departments utilize cell phones for the purpose of online medical control and notification of

incoming patients. Although AFD and HFD medic units and hospitals are equipped with the Hospital

Emergency Ambulance Radio (H.E.A.R.) frequencies, the system is seldom used. Only AFD is capable of

transmitting 12-lead ECGs from their cardiac monitors—however, this is rarely done.

Hospitals & Tertiary Care Facilities

Grays Harbor Community Hospital

Grays Harbor Community Hospital (GHCH) is the only hospital located in Grays Harbor County, and serves as

the local Medical Control facility. GHCH is a state-designated Level III Trauma Center, and operates a

24-hour emergency department staffed with qualified physicians and nursing staff. The hospital is the primary

destination for patients transported by both AFD and HFD.

Summit Pacific Medical Center

Located in Elma, between Aberdeen and Olympia, is the Summit Pacific Medical Center (SPMC). SPMC

operates a 24-hour emergency department staffed with emergency physicians and nursing staff. The hospital

is state-designated as a Level IV Trauma Center, Level II Cardiac Center, and Level III Stroke Center. AFD and

HFD rarely transport patients to SPMC.

SPMC is a member of Southwest Washington’s Telestroke Network, which enables patients to come to the

hospital at the first signs of stroke, but will be immediately seen by a neurologist from the stroke center at

Providence St. Peter Hospital in Olympia, using advanced video technology.

Other Regional Facilities

The following figure lists other regional and tertiary care facilities to which patients from Grays Harbor County

(and surrounding communities) may be transported.


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Figure 76: Other Regional Clinical Facilities

Facility Trauma Cardiac Cath Stroke Distance

Providence St. Peter Hospital Level II Yes Yes 54 miles

Mary Bridge Children’s Hospital Pediatric Level II Yes N/A 82 miles

Harborview Medical Center Level I Yes Yes 110 miles

Harborview Medical Center serves as the primary regional Burn Center in Washington State. There is a lack of

psychiatric and mental health services in the region, which apparently has had a significant impact on EMS

and other emergency services.

EMS Records Management & Patient-Care Reports

AFD and HFD utilize different EMS records management systems (RMS) to document individual incidents,

detailed patient records, and billing information. The Hoquiam Fire Department utilizes the web-based

application, Emergency Reporting Software™ (ERS) to document all fire, EMS, and other incidents, but not

detailed patient-care reporting. Instead, HFD uses MPD-approved paper-based forms to document patient

information. Copies of the patient-care reports are sent to EF Recovery, LLC for billing purposes.

The Aberdeen Fire Department utilizes ImageTrend® RMS for incident and patient-care reporting—which also

uses a web-based platform. For billing purposes, AFD uses the TriTech (now Central Square) Respond EMS

software. The following figure represents a comparison of the software applications used by each fire

departments for incident documentation.

Figure 77: Comparison of AFD & HFD EMS Records Management Systems

Software & Features Aberdeen FD Hoquiam FD

EMS incident reporting ImageTrend® ERS®

Electronic patient-care records (ePCR) Yes No

NEMSIS-compliant Yes No

NFIRS-compliant Yes Yes

HIPAA-compliant Yes Yes

RMS integrated with CAD Yes Yes

Patient-refusals documented Yes Yes

Process in place for ePCR requests Yes No

Health Information Exchange No No

As shown in the preceding figure, there are both similarities and differences between the records

management systems utilized by AFD and HFD. In the event of a consolidation, the leadership will need to

determine a standard RMS capable of documenting basic EMS incident data, as well as allowing for the entry

of comprehensive patient information and generation of complete ePCRs.


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AFD uses an electronic RMS for documenting patient care, while HFD continues the use of paper-based forms.

Ideally, all EMS, fires, and other incidents, along with detailed patient-care records should be entered into a

single records management system.

Recommendations:

• Determine if the current AFD RMS is sufficient to meet the needs of a new organization.

• Develop policy requiring all patient care be documented in the electronic RMS.

• Create standard operating guidelines that address minimum patient-care documentation standards.

• Conduct training sessions for HFD operations personnel on the use of the RMS and related SOGs (AFD

personnel may need to attend training as well).

• Whatever RMS is utilized, it should have the following features:

▪ Integration with the CAD system, with automated download of timestamps, incident locations, and

other information from the communications center.

▪ Ability to function both online and offline, and run both a mobile application and web interface.

▪ Capable of printing and/or sending individual ePCRs to the hospital and per patient-request.

▪ Ability to produce summary reports and other records for EMS quality management and EMS

system performance.

▪ If technically possible, capable of integration with the Lifepak® Monitor/Defibrillators in order to

import information (ECG, vital signs, etc.).

• At some point in the future, the RMS should be capable of integration of a Health Information

Exchange system with Grays Harbor Community Hospital.

EMS Quality Management

The National Fire Academy (NFA) uses the term “Quality Management” (QM) as an all-encompassing process

for process improvement. Fire and EMS organizations tend to utilize various terms when referring to Quality

Management:

• “Quality Assurance” (QA) is typically defined as all planned or systemic actions necessary to provide

adequate confidence that a service will satisfy, given the requirements for quality.

• “Quality Improvement” (QI) or “Continuous Quality Improvement” (CQI) may be defined as a

systematic process of review and analysis, in order to work toward higher levels of performance (both

system and clinical) or quality.

A comprehensive EMS quality improvement program should include a process for evaluating system or

operational performance, based on adopted or mandatory performance goals (e.g., response times, turnout

times, etc.), in addition to clinical performance (e.g., protocol compliance, patient outcomes, clinical skills

success rates, etc.). The following figure lists the elements and processes related to EMS QM used by both fire

departments.


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Figure 78: EMS Quality Management Components by Department

Quality Management Component Aberdeen FD Hoquiam FD

Operational Quality Management

Evaluation of EMS System Performance Not formally Not formally

Areas for improvement are identified Yes Yes

Clinical Quality Management

Internal clinical QI committee Mostly for documentation Mostly for documentation

Key performance indicators (KPI) None established None established

MPD participates in QI committee No No

Feedback given to EMS providers Yes Yes

Patient refusals reviewed No No

PCRs spot-checked for accuracy Yes (administrative staff) In-house “report reviewers”

Regular reports on EMS QM results No No

Patient outcomes tracked No No

Process to address patient complaints Chief or Battalion Chief (BC) Medical Services Officer

Participation in protocol development Yes Yes

As shown in the preceding figure, EMS quality management components in both fire departments are nearly

equivalent. Neither department has a formal program in place to evaluate EMS operational performance

within their respective cities, or on a systemic basis—although areas for improvement are identified

informally. However, some of these activities are monitored through the local EMS & Trauma Care Council.

Apparently, each department has some type of internal clinical quality improvement committee. However, it

appears that these focus primarily on ensuring adequate documentation for billing purposes. At Aberdeen,

patient-care reports are spot-checked for accuracy by an EMS Accounts Specialist and Administrative

Coordinator—but not necessarily for clinical performance. Hoquiam utilizes in-house “report reviewers.” Each

department provides feedback to their EMS personnel.

Countywide Quality Management

According to its bylaws, the Grays Harbor EMS & Trauma Care Council is responsible for evaluating EMS agency

response times in accordance with relevant Washington Administrative Code, as well as reviewing other EMS

system goals and objectives outlined in the in the Regional Trauma Plan.

Both Aberdeen and Hoquiam participate in county-level EMS meetings and committees. The Medical Services

Officers (MSO) meet with the MPD on a quarterly basis go address general EMS system issues and trends. The

QA/QI Committee meets bi-monthly to review EMS incidents meeting specific criteria determined by the MPD.

Although the Medical Program Director does not participate in either fire department’s internal QM

processes, she is an active participant in these countywide committees and meetings.


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EMS Quality Management Discussion

Internal EMS quality management in both departments appears to be limited, consisting primarily of informal

processes. Emergency medical services represent the highest amount of service-demand. With both

departments providing advanced-level ground emergency medical transport services, comprehensive quality

management processes that evaluate both operational and clinical performance are critical. Some areas of

concern include:

• Patient refusals not regularly reviewed. Patient refusals and/or non-transports are often a significant

source of liability in organizations providing ALS transport services.

• While it is important to spot-check PCRs by administrative staff to ensure accuracy for billing, this

likely does not ensure clinical accuracy or protocol compliance.

ESCI recognizes that tracking patient outcomes is difficult or impossible in many EMS systems. However, with

the majority of patients transported to Grays Harbor Community Hospital, there should be options for

determining outcomes in a certain subset of patients admitted to that facility.

Recommendations:

• Establish an internal Continuous Quality Improvement Committee comprised of experienced EMT-

Paramedics. The CQI Committee should meet at least bi-monthly to review:

▪ EMS operational performance.

▪ Conduct peer-reviews of significant cases, patient refusals, and non-transports.

▪ The Committee should work with the MPD to establish key clinical performance indicators (unless

already adopted at the County level), as well as recommend operational performance criteria.

• Develop a process for reviewing the ePCRs for completion of mandatory fields, and providing

feedback to the individual EMS providers.

• Initiate a process for determining patient outcomes, including survival to discharge of cardiac arrest

patients.

• It is beyond the scope of this report to address this in detail, but the leadership should research and

consider adopting the Just Culture approach to EMS quality management.


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EMS Equipment & Supplies Inventories

Aside from medic units, the most expensive equipment for GEMT providers tends to be cardiac

monitor/defibrillators and ambulance gurneys (stretchers)—particularly those that are powered or have

powered systems.

The Aberdeen Fire Department maintains four Physio-Control Lifepak® 15 Monitor/Defibrillators, while the

Hoquiam Fire Department utilizes four of the older model Lifepak® 12 Monitor/Defibrillators. Between the

two departments, they own nine Automated External Defibrillators (AED); manufactured by Zoll™ and Physio-

Control, Inc.

Equipment & Supplies Logistics

Disposable and other medical supplies necessary for re-stocking medic units and other apparatus are

maintained in AFD’s and HFD’s respective fire stations. Each department performs daily equipment and

supplies checks.

The Aberdeen Fire Department uses a commercial inventory management product, while the Hoquiam Fire

Department uses a system of numbered labels. The use and security of scheduled (controlled) medications

are done by each department in accordance with Grays Harbor County protocols/policies. These drugs are

kept in a locked storage facility and locked drawers in each medic unit; and a daily count is completed and

logged.

EMS Operations & Deployment

General EMS operations and deployment methods utilized by each department are equivalent. Both agencies

maintain 24-hour advanced life support medic units, although some of the medic-unit crews at either

department will cross-staff other apparatus when indicated.

Aberdeen Fire Department EMS Operations

AFD operates two 24-hour daily ALS medic units staffed with a minimum of one EMT-Paramedic and one EMT-

Basic. Medic 10 is deployed from Aberdeen Station #1, with Medic 12 assigned to Station #2 in South

Aberdeen; although the personnel at that station will cross-staff Engine 12 when indicated. Combined, both

AFD medic units provide 48 unit-hours per day, and 17,250-unit hours annually.

Hoquiam Fire Department EMS Operations

HFD also operates two 24-hour daily ALS medic units staffed with a minimum of one EMT-Paramedic and one

EMT-Basic. Medic 1 is deployed from Hoquiam Station #1, and may cross-staff another apparatus. Medic 3

serves as a “second out” unit and is housed at Station #1. Medic 2 is deployed from HFD Station #2 in East

Hoquiam, and may also cross-staff other apparatus.

Since some of the medic units at both fire departments are cross-staffed, between the two, there are two 24-

hour ALS medic units with dedicated staffing. Additional medic units are subsequently staffed when needed,

so long as they are not staffing another apparatus that may be assigned to a fire or other non-EMS incident.


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Medical First-Response & Mutual Aid

Other than AFD and HFD, there are at least 19 fire protection districts and municipal fire departments

providing medical first-response (MFR) services throughout Grays Harbor County. AFD and HFD are the

primary providers for their respective cities, as well as for a number of surrounding communities and

contracted locations. The following figure lists those departments providing MFR, and in which the Aberdeen

Fire Department and/or Hoquiam Fire Department typically provide ALS GEMT services. Each of the

departments listed provide emergency medical services at the BLS level.

Figure 79: Fire Departments providing Medical First-Response

MFR Agency Service Level

Cosmopolis Fire Department BLS

Fire District #4 (Lake Quinault VFD)1 BLS

Fire District #6 (North Hoquiam FD) BLS

Fire District #7 (Copalis Beach FD) BLS

Fire District #8 (Pacific Beach FD)1 BLS

Fire District #10 (Wishkah FD) BLS

Fire District #15 (Artic FD) BLS

Fire District #16 (Copalis Crossing FD)1 BLS

Fire District #17 (Humptulips FD) BLS

1Hoquiam FD provides upgrade to ALS when requested

Nearly all of the MFR agencies are staffed primarily with “volunteer” personnel. As shown in the preceding

figure, each of these departments provides EMS at the basic life support level.

EMS Mutual Aid

Both Aberdeen and Hoquiam participate in a countywide mutual aid agreement. The majority of mutual aid

given and received is between AFD and HFD. Aberdeen maintains contracts to provide ALS transport to the

City of Cosmopolis, Grays Harbor County Fire District #10 (East Hoquiam, Wishkah, and Aberdeen Gardens),

Fire District #15 (Artic and Vesta), and the Stafford Creek Correctional Facility southwest of Aberdeen on

Highway 105. Both Hoquiam and Aberdeen have contracts with Fire District #10.

The Hoquiam Fire Department provides automatic aid to Grays Harbor County Fire District #6 (Grays Harbor

City and North Hoquiam), Fire District #7 (Ocean City and Copalis Beach), and Fire District #17 (Humptulips

and Axford Prairie). In addition, HFD provides mutual aid ALS upgrades to Fire Districts #16, #8, #4, and

Taholah.


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Aeromedical Services

Helicopter medical transport is provided by Airlift Northwest, with the nearest bases in Olympia (approximate

20-minute flight time) and Bremerton (approximate 28-minute flight time). In addition to Airlift, Life Flight

maintains a helicopter base approximately 77 miles to the south, in Astoria, Oregon. Airlift staffs their

helicopters with two Critical Care RNs (CCRN), while Life Flight utilizes an EMT-Paramedic and a CCRN.

Requests for helicopter scene responses must be approved by Medical Control, and AFD and HFD rarely use

either of the services.

Interfacility Transports

Both fire departments provide non-emergent and emergent interfacility transports (IFT), as well as long-

distance and out-of-area transfers. Typically, in high-acuity, critical patients, both departments will conduct

IFTs to Olympia using on-duty personnel and medic units. However, per standard operating guidelines, HFD

limits the distance to which it will conduct IFTs.

In low-acuity, non-emergent patients requiring transport to an out-of-town facility, both AFD and HFD attempt

to bring in off-duty staff to conduct the IFT. The purpose is to prevent using limited resources (medic units)

from being out-of-service for an extended time, and unable to respond to local 911 emergencies.

Interfacility Transports Discussion

Apparently, IFTs (transfers out of GHCH) have continued to be an issue for some time. Both departments

reported that it is difficult to get off-duty firefighters to come in and conduct IFTs on overtime. Anecdotal

information from operations personnel at both departments indicated that they are so “burned out” after

working their normal shifts, that they have no desire to obtain overtime pay on their days off.

For Grays Harbor Community Hospital, this has been problematic. When a patient needs to be transferred

from the Emergency Department to a tertiary care facility (most often St. Peter’s in Olympia), the ED physician

and/or staff contacts AFD or HFD directly to request a medic unit for transfer.

In some cases, the fire departments have had to deny the request, as they did not have medic units available

due to other calls, or that sending a unit out of town would leave their respective cities without an ambulance

to respond to 911 calls. In these instances, the ED physician is forced to “ambulance shop” in order to find

one of the other local transport providers to conduct the IFT. On some occasions, this has resulted in an hour

or more delay—which can have a negative impact on the outcomes of a certain subset of patients (e.g., stroke,

STEMI, multisystem trauma, etc.).

Other than adding more staffed medic units in the system, there are likely few options to resolve or improve

the current issues associated with GHCH’s need to acquire medical transport of patients needing both

emergent and non-emergent transport. It would be in the best interests of both the patients and community

to develop a process to minimize the time necessary to obtain immediate transport.


112

Intuitively, it would appear that having GHCC be the point of contact for the hospital to request transport,

since the dispatch center monitors all transport units throughout the County, might make the most sense.

However, this could result in transferring the problem from GHCH to GHCC, who would also have to use a call

list to acquire a transport unit. Given the limited number of Telecommunicators at GHCC, whose primary

responsibility to answer and dispatch 911 calls, and communicate with fire and law enforcement agencies in

the field, this would likely be impractical.

GHCH has informally considered utilizing hospital staff to monitor the status of the various transport providers

throughout the County. However, there is no practical means in place for such a process. In the long-term,

GHCH, GHCC, and the EMS organizations may want to consider the development of a web-based system that

could interface with the CAD system and show the real-time status of all transport units in the County (without

enabling access to law enforcement records or activities).

Depending on a community’s payor mix, in many systems, interfacility transports can be a substantial source

of revenue that can help fund EMS transportation services. If more resources are added to the current system

following a consolidation, the “burnout” factor among the firefighters could potentially be reduced or

eliminated.

Recommendations:

• If the two fire departments consolidate into a single organization, the shift Battalion Chief should

consistently monitor the status of each of the medic units.

• When an IFT is needed, GHCH should contact the BC directly and request a transport. The ED

physician must clearly state whether the transport is time-critical or not, based on the patient’s level

of acuity only—not on the need to free-up room for other patients.

• The new consolidated fire department should analyze the frequency, volume, and temporal data of

requests for IFTs. This should be done in cooperation with GHCH to determine the data of additional

IFTs provided by other transport providers.

• This should also include an analysis of the revenue generated by IFTs.

• Should the analysis indicate that IFT call volumes and revenue are adequate, consider placing two

firefighters daily on “standby” to be available to come in off-duty to conduct IFTs.

• This should be voluntary, and firefighters should be paid some type of stipend in order to be available

to come in on short notice.

Commercial Ambulance Service Provider

Ride to Wellness (RTW) is a commercial ambulance service provider based in Aberdeen and Tacoma. The

service is licensed to provide both BLS and ALS interfacility transfers; out-of-area transports; newborn and

pediatric transfers; and other non-911 medical transport services. The company’s website promotes client

comments stating that their costs are lower and responses better, than the “County fire department

agencies.”


113

General EMS Discussion

Response-Time Performance Standards

Historically, there has been substantial emphasis on EMS response-time performance criteria. The most

common industry standard for ALS response-times has been “8 minutes or less at the 90th percentile.” In some

cases, this may have led to unintended, albeit harmful consequences (e.g., emergency vehicle accidents) and

unjustifiable confidence in performance and quality. Much of the early clinical research concerning early

access to advanced life support came from a period prior to the advent of citizens and BLS providers having

the capability to defibrillate, and when chest compressions in cardiac arrest received much less emphasis.29

There is a growing body of evidence-based research indicating that an 8-minutes or less ALS response times

do not improve or impact patient outcomes in both cardiac arrest and trauma.30,31 Although only two

references are listed here, there are a substantial number of other valid studies that support this contention.

With the potential for a consolidated fire and EMS organization, the fire department leadership should

evaluate and consider the adoption of reasonable response-time (and other) performance goals. This should

be done in the context of satisfying public expectations, but while also protecting both the driving and

pedestrian public. Ideally, the fire department should be held accountable to response-time performance

goals that are as clinically significant (producing the best patient outcomes) as they are politically relevant.

Paramedics & EMT-IV Technicians

Between the two fire departments, there are 36 EMT-Paramedics ranging in rank from firefighter to Battalion

Chief; 12 EMT-IV Technicians of varying ranks; with the remaining operations personnel certified at the EMT-

Basic level. The following figure lists the combined AFD and HFD personnel by advanced-level certification and

rank.

Figure 80: Combined AFD & HFD Personnel with Advanced EMS Certifications

Rank & Certification AFD & HFD Combined

Battalion Chief/EMT-P 1

Battalion Chief/EMT-IV 1

Captain/EMT-P 8

Captain/EMT-IV 4

Engineer/EMT-P 7

Engineer/EMT-IV 5

Firefighter/EMT-P 20

Firefighter/EMT-IV 2

29 Eisenberg M, Hallstrom A, Bergner L. The ACLS score. Predicting survival from out-of-hospital cardiac arrest. JAMA

1981;246(1):50–52.

30 Pons P, Markovchick V. Eight minutes or less: Does the ambulance response time guideline impact trauma patient outcome? J

Emerg Med. 2002;23(1):43–48. 31 Blackwell TH, Kline JA, Willis JJ, et al. Lack of association between prehospital response times and patient outcomes. Prehosp

Emerg Care. 2009; 13(4):444–450.


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The labor agreements among the two fire departments allow for the same rate of premium pay for firefighters

and officers. EMT-Paramedics receive 10 percent above their base salary, with EMT-IV Technicians receiving

2 percent above their base wage. The following figure shows the estimated combined costs of premium pay

for those personnel certified at one of the advanced levels (above EMT-Basic).

Figure 81: Estimated Costs of Premium Pay for Advanced-Level EMS Personnel (2018)

Rank & Certification

Approximate Amount above Base Approximate

Total Cost AFD HFD

Battalion Chief/EMT-P $9,794 N/A $9,794

Battalion Chief/EMT-IV $1,958 N/A $1,958

Captain/EMT-P $8,481 $7,399 $62,438

Captain/EMT-IV $1,701 $1,480 $6,583

Engineer/EMT-P $7,708 $6,618 $49,596

Engineer/EMT-IV $1,540 $1,324 $7,268

Firefighter/EMT-PA $6,046B $5,468B $117,452

Firefighter/EMT-IVA $1,469 $0 $2,938

Total Annual Estimated Costs of Premium Pay: $258,027

ARepresents the amount above Step 2 following completion of the first probationary year

BCalculated based on Step 2; actual costs higher due to step increases

As shown in the preceding figure, the estimated combined costs to pay EMT-P and EMT-IV is nearly $260,000

annually (which excludes any benefits costs). In each case, AFD operations personnel receive a higher amount

of pay than HFD personnel (due to differences in base salaries). Should the two fire departments proceed with

some form of consolidation, these costs could potentially increase to over $272,000 annually. This would

depend on negotiations between the cities and labor unions, but history indicates that those with lower pay

rates tend to be brought to the same level as those with the highest wages.

It is important to note that ESCI takes no position on the current wages and premium pay-rates allocated to

the operations personnel at either of the two fire departments—as those are issues that must be determined

through discussions between the City leaders and bargaining units. ESCI presents this as information only,

without recommendations.


115

Discussion of EMT-P & EMT-IV Technician Staffing

In the past, many communities took the position that the more paramedics on duty, the better. Many fire

departments took this position and staffed their engine companies with paramedics and advanced life support

equipment. In an effort to improve ALS response-time goals, Fire Chiefs and EMS managers added more

paramedics to their systems. By doing so, the frequency with which each individual paramedic had the

opportunity to assess critically ill or injured patients, and perform advanced clinical skills decreased.

Considering that patients requiring ALS constitute a small portion of scene responses, adding more

paramedics into the system may actually reduce an individual paramedic’s exposure to critical decision-

making and clinical skill competencies.32,33,34

The necessity of utilizing and maintaining CME and skills proficiency of EMT-IV Technicians at AFD and HFD

may be questionable. Some will argue that the EMT-IV Tech frees up the paramedic to perform other

advanced procedures, rather than taking the time to obtain intravenous access. However, the benefits of

utilizing EMT-IV Technicians are primarily anecdotal, and without evidence to support their impact on patient

care and outcomes. As with the Paramedics, opportunities to perform venipunctures and maintain proficiency

in vascular access may be limited for the EMT-IV Technicians.

ESCI does not in any way mean to suggest that those firefighters certified as EMT-IV Technicians do not provide

value to the provision of EMS. Simply, the added skill of performing venipunctures may have little value in the

prehospital setting; and, that the disadvantages of maintaining skill proficiency and CME above that required

of EMT-Basics outweigh the possible advantages.

Clearly, AFD and HFD are not overstaffed with operations personnel. However, should the two departments

merge, it may be a good time to carefully evaluate the number of EMT-Paramedics necessary to effectively

provide EMS and patient transport services—along with the usefulness and necessity of employing EMT-IV

Technicians. This should be done honestly and carefully.

ESCI does not recommend personnel layoffs or elimination of EMT-P or EMT-IV Technician premium pay.

However, as members leave through attrition, consideration should be given as to the necessity of replacing

them with firefighters with advanced-level EMS certifications.

Recommendations:

• If the agencies integrate, re-evaluate the role of EMT-IV Technicians in the system.

• Carefully monitor the minimum number of Paramedics required to provide ALS transport services.

32 Davis R. Inverse life-saving function. USA Today March 2, 2005, p. 1D. 33 Sayre M, Hallstrom A, Rea TD, et al. Cardiac arrest survival rates depend upon paramedic experience. Acad Emerg Med. 2006;13(5

Suppl):S55–S56. 34 Stout J, Pepe PE, Mosesso VN, Jr. All-advanced life support vs tiered-response ambulance systems. Prehosp Emerg Care

2000;4(1):1–6.


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Patient Characteristics

The Aberdeen Fire Department recently switched to ImageTrend Software to electronically document ePCRs

for EMS patients. AFD was able to provide 10 months of patient records in an Excel® spreadsheet format

(electronic patient records were unavailable from HFD). The dataset consisted of 4,171 individual records for

the period February 19, 2018, to January 11, 2019. Although a relatively small data sample, analysis does

provide some indication of the types of patients seen and transported by AFD. It can only be assumed that

patients seen by HFD follow the same characteristics.

For the following analyses, ESCI filtered the dataset to include 911 scene responses; those requiring an

emergent response (lights & siren); and incidents in which an AFD unit responded. This produced a dataset of

3,673 patients. The majority of patients were female at 47 percent; males 45 percent; and the remainder

undocumented. Patient ages ranged from less than 1 year to 105 years.

The system includes a field in which to document “Primary Provider Impression.” This is the EMS provider’s

“diagnosis” of the patient’s condition. The dataset contained 172 distinct provider-impression types for the

10-month study period. When documenting patient records, the impressions are selected from a drop-down

list in the system. Of all the patient records, there were 416 (11%) in which the field was left blank, and no

impression was recorded. The next figure lists the top 10 most frequent provider impressions as documented

by AFD EMS personnel.

Figure 82: Top Ten AFD Provider Impressions (2/19/2018–1/11/2019)

Provider Impression Qty. Percent of

All Patients

Other–Weakness 140 4%

Chest Pain–Presumed Cardiac 133 4%

Behavioral–Anxiety 117 4%

Seizure 113 3%

COPD Exacerbation 107 3%

Trauma–Head Injury 103 3%

Altered Mental Status 85 3%

Acute Onset Abdominal Pain (< 24 Hours) 72 2%

Abdominal Pain (> 24 Hours) 69 2%

Shortness of Breath 66 2%

While some provider impressions are obviously critical (e.g., cardiac arrest, stroke, anaphylaxis, etc.), many

others are not necessarily an accurate indicator of patient’s level of acuity. Superficially, three of the top ten

(or 10% of all patients) types of impressions suggest they are non-critical or low acuity.


117

Another indicator of a patient’s level of acuity is to review the transport mode (lights and siren versus no lights

and siren) to the hospital. Typically, critical patients are transported emergently with lights & siren. In

reviewing the dataset, the transport mode was not documented in 35 percent of the records. However, in 65

percent of the records, the patient was transported with lights and siren. Compared to most other EMS

systems, this would be highly unlikely; as in ESCI’s experience, emergent transport is typically conducted in

approximately 10 to 20 percent of patients. AFD has stated that, since the RMS is relatively new, there have

been many errors and incomplete documentation in the ePCRs. ESCI believes that the 65 percent emergent

transport-rate is not accurate.

Community Paramedicine Program

Mobile Integrated Healthcare-Community Paramedic (MIH-CP) programs can be found throughout the United

States and Canada, and can take many forms. Often, they are developed to reduce unnecessary 911

responses; address chronic users of the EMS system; and direct a certain subset of patients to alternative

healthcare facilities other than hospital emergency departments. While it is beyond the scope of this project,

ESCI recommends that the EMS agencies, healthcare organizations, MPD, and others throughout Grays Harbor

County eventually engage in a needs assessment for implementing an MIH-CP program countywide.


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Fiscal Analysis

Economic Setting

The Aberdeen/Hoquiam area is located about 50 minutes’ drive west of Olympia, Washington, on the eastern

end of Grays Harbor. The area is a traditional working-class community, with a history of fishing and timber

industries. The area is known for excellent recreation activities, with easy access to activities along the coast

and in the Olympia National Park.

As fisheries and timber have diminished, the primary employment sectors have become service and

government. Major area employers include governments (including school districts and the community

college), retailers, and healthcare. Tourism and shipping are growth industries. Tourism has grown as people

pass through the area on their way to the Pacific Coast and the Olympic National Park—hotel/motel tax

revenues have steadily increased since 2012. Shipping has grown through efforts of the Port of Grays Harbor

to upgrade transportation facilities and infrastructure, and increase activities at its four deep-water marine

terminals.

Along with some positive datapoints, there are also some troubling economic trends in the area. Chief among

these is the shrinking population base. The historic high population for both cities was in 1930 (the beginning

of the available data) and neither shows significant signs of growth, despite growth for the county as a whole

(see Figure 83). This will tend to suppress housing values and strain property tax revenue flexibility. While

average housing values have been on the rise across the county, the median home values in Aberdeen and

Hoquiam are the lowest among the incorporated areas. It should be noted that both cities’ comprehensive

plans allow for modest population growth despite the historic trends.

Figure 83: Historic Populations

While the gap has narrowed in recent years, another concerning trend is the county’s (and assumedly the

cities’ as well) unemployment rates that remain consistently high and considerably higher than state and

national rates (see Figure 84).

-

10,000

20,000

30,000

40,000

50,000

60,000

70,000

80,000

-

5,000

10,000

15,000

20,000

25,000

1930 1940 1950 1960 1970 1980 1990 2000 2010 2018Est

Aberdeen Hoquiam Grays Harbor


119

Figure 84: Annual Unemployment Rates, 1990–2017

While the economy is improving for the Aberdeen/Hoquiam area, it remains weaker than much of the state.

Along with existing property tax limitations (primarily the 1% growth cap), local governments will likely

continue to find it difficult to raise tax revenues from a population already struggling with relatively low pay

rates and high unemployment.

That said, both cities’ average 6-year property tax revenues exceeded the rate of inflation (CPI). For the period

2014 to 2019, Aberdeen’s property tax levy increased by 9.1 percent, Hoquiam’s increased 11.6 percent, while

the CPI increased 7.7 percent. The increases in property taxes can be explained by the 1 percent annual

increase plus new construction, which 3.3 percent to Aberdeen’s total assessed value and 1.7 percent to

Hoquiam’s (see Figure 85).

0%

2%

4%

6%

8%

10%

12%

14%

16%

2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017

Grays Harbor State U.S.


120

Figure 85: Property Tax Statistics

Assessed Value 2014 2015 2016 2017 2018 2019

Aberdeen City $933,547,542 $898,738,864 $888,531,817 $879,487,501 $908,717,485 $968,220,391

Aberdeen Bonds $921,799,655 $888,592,550 $881,704,301 $869,878,732 $897,366,513 $955,097,700

Hoquiam City $394,875,216 $445,366,141 $427,745,741 $414,474,660 $413,934,753 $442,292,250

Hoquiam Bonds $389,444,421 $439,594,249 $424,809,515 $410,161,185 $409,232,861 $436,307,245

Levy Rates 2014 2015 2016 2017 2018 2019

Aberdeen City $ 2.9469 $ 3.1604 $ 3.2286 $ 3.2007 $ 3.2654 $ 3.0992

Aberdeen Bonds $ 0.0661 $ 0.0641 $ 0.0688 $ 0.0899 $ 0.0872 $ 0.0839

Hoquiam City $ 3.4093 $ 3.4143 $ 3.2286 $ 3.2007 $ 3.2976 $ 3.3968

Hoquiam EMS $ 0.5000 $ 0.5000 $ 0.5000 $ 0.5000 $ 0.5000 $ 0.4810

Hoquiam Bonds $ 0.3534 $ 0.2402 $ 0.2459 $ 0.4800 $ 0.4425 $ 0.4102

Levies 2014 2015 2016 2017 2018 2019

Aberdeen City $ 2,751,096 $ 2,840,388 $ 2,868,686 $ 2,815,010 $ 2,967,330 $ 3,000,516

Aberdeen Bonds $ 60,969 $ 56,971 $ 60,645 $ 78,202 $ 78,207 $ 79,291

Hoquiam City $ 1,346,252 $ 1,520,609 $ 1,381,006 $ 1,326,625 $ 1,365,000 $ 1,502,362

Hoquiam EMS $ 197,438 $ 222,683 $ 213,873 $ 207,237 $ 206,967 $ 212,743

Hoquiam Bonds $ 137,642 $ 105,581 $ 104,459 $ 196,888 $ 181,069 $ 178,975

New Construction 2014 2015 2016 2017 2018 2019

Aberdeen City $ 4,642,007 $12,068,575 $ 5,757,033 $ 2,216,413 $ 2,672,725 $ 3,784,987

Hoquiam City $ 432,539 $ 429,724 $ 3,346,062 $ 981,425 $ 694,873 $ 849,069

Interconnectedness

There currently are no significant interlocal agreements between the two cities regarding Fire Services, and

they are not currently sharing significant resources. From a financial perspective, this means that any potential

efficiencies between the two cities have yet to be tapped.

Both cities participate in the Grays Harbor 911 Communications Center. Assumedly any new or combined

agency would continue using this service with no net change in overall costs. Costs are allocated to member

agencies according to their percentage of population and calls. While the issue is beyond the reach of this

study, we note that for Aberdeen 911 costs have almost doubled from $153,748 in 2016 to $284,830 in 2018.

This may be an issue that local leaders may wish to investigate during the course of their deliberations.


121

Relative Strengths/Weaknesses

Aberdeen’s assessed value is more than twice that of Hoquiam, but Hoquiam has an EMS levy that helps offset

its lower property tax revenues. Also, Hoquiam brings in more revenue through contracts and fees for service

than does Aberdeen (proportional to population). While the two cities’ general property tax levies were the

same in 2017 at $3.2007 per $1,000, Aberdeen’s 2019 levy rate is $3.10 per $1,000 while Hoquiam’s is $3.40

per $1,000. This change is due to the fact that Aberdeen’s assessed value has grown more over the past couple

year’s than Hoquiam’s.

If one were to compare what each department would likely receive in property taxes as a stand-alone district

($1.50 levy plus any existing EMS or M&O levy) to their current budgets, both districts would lose money (see

forecast sections for each city below). Hoquiam would be at a 9.9 percent deficit in 2019 and Aberdeen would

be at a 13.5 percent deficit. However, if Aberdeen had a $0.50 EMS or M&O levy, they could lower that deficit

to 5 percent. It is worth noting in both cases that these numbers do not include overhead costs that are

currently absorbed elsewhere in each city’s budget.

Both cities have established an ambulance utility for their rate-payers. Aberdeen charges $23.87 per month,

generating an estimated $2.1 million annually. Hoquiam charges $19.23 per month, generating an estimated

$900,000 annually. By combining and standardizing operations and service levels throughout the two-city

service area, an appropriately uniform utility fee can be charged for the rate-payers of both communities that,

combined with user fees and a portion of EMS levy revenues, captures the true cost of EMS transport

services.35

Figure 86 provides some common financial comparison measures for the two cities. These comparisons do

not necessarily reflect management effectiveness, but rather reflect the realities of each city’s situation. We

note that for the measure over which they have the most control—personnel costs—the two cities are very

similar.

Figure 86: Comparison Measures

Comparison Measures Two Cities Combined

Aberdeen Hoquiam

Revenues

Assessed Value Per Capita $51,145 $52,538 $48,420

Contract & Fee Revenue Per Capita $247 $201 $337

Expenses

2017 Cost Per 911 Incident $1,179 $1,246 $1,083

2017 Cost Per Capita $330 $310 $368

2017 Cost Per Fire Employee $154,483 $157,272 $150,101

2017 Cost / Land Area $334,085 $443,588 $237,538

35 RCW 35.21.766


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Aberdeen

The City of Aberdeen’s Fire Department spent $5,153,706 in 2017, providing fire and emergency medical

services to a population of 16,740 covering 11.7 square miles. It provides these services with two stations and

a total of 37 personnel (13.5 in fire and 23.5 in EMS). Compared to Hoquiam, the department serves roughly

twice the population with roughly twice the number of personnel.

The Fire Department is comprised of 33 uniformed members, a Fire Chief, Assistant Chief, Administrative

Coordinator, and EMS Accounts Specialist. A portion of the administrative staff and 12 uniformed members

are budgeted to the General Fund. In addition to fire suppression, the department provides fire prevention,

code enforcement, public education, and emergency medical service to the citizens of Aberdeen and

contracted jurisdictions outside the city limits.

Like Hoquiam, Aberdeen provides fire and EMS services to several surrounding jurisdictions. In total, the

contracts call for payments of an average of 119,513 to the City, or 2.3 percent of the total expenditure

budget.

Since it is a City department, there is no direct connection between the property tax levy or other tax revenues

and the fire department’s services. That said, if a $1.50 levy rate were applied to the City’s assessed value, it

would accrue $1.363 million. With the additional $3.3 million in ambulance/EMS fees the department

receives, it would conceivably have a total revenue of about $4.66 million, which would be $547,000 short of

its 2017 $5.210 million expenditures.

The City does not allocate overhead expenses within its general fund, so the department’s budgeted costs

appear lower than they would if it were a separate agency. There are a variety of valid ways to estimate how

much of the overhead costs are attributable to the fire department, and each would likely produce a different

result. Perhaps the simplest and most accurate is to use the overhead paid by the EMS Fund as a guide. In

2017, the EMS Fund was budgeted to pay $102,506 to the General Fund, or about 3.2 percent of the EMS

Fund’s 2017 expenses. Applying that 3.2 percent to the General Fund fire expenses would add an estimated

$63,000. This would bring the total shortage discussed in the previous paragraph to $610,000. A $0.50 EMS

Levy would cover $454,000 of that deficit. We were unable to find what portion of the ER&R budget is

regularly spent on fire equipment, so we do not know how this would impact the above calculations.

Over the past 6 years, the department’s budget has been erratic, with slight declines in the first three years

and general growth in the most recent three years, as reflected in Figure 87. This growth can be attributed

largely to increases in personnel costs (which account for 90% of total expenses).


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Figure 87: Total Fire/EMS Expenditure Growth

Capital Improvements and Debt

Aberdeen manages its vehicle fleet through its Equipment Rental Operations and Equipment Rental Reserves

funds. The Fire Department and EMS Fund each pay into the Equipment Rental Funds for their portions of the

activities. Large purchases of fire trucks and the like are funded through debt issuances. Most recently a bond

was issued in 2000 that included funding for two fire trucks. This bond is supported by a special property tax

levy currently of $78,041 at a rate of $0.8715, and will be paid off in 2020 opening up the possibility of a new

bond for further capital needs.

Additional to bonded debt, the City has liabilities for compensated leave (only vacation time is paid upon

separation), pension liability and other post-employment benefits—the amounts attributable to the fire

department are unknown. Pensions are managed through the Fire Pension Fund, which has seen a downward

trend in annual expenditures. This fits the demographics of those served by the fund; a total of 44 retirees

who were employed prior to March 1, 1970.

Budgetary Review

The City of Aberdeen operates on a cash basis (versus accrual) and budgets on an annual cycle. Fire and EMS

services are budgeted in several areas. Fire services are budgeted as a department within the General Fund,

EMS services are budgeted under a special revenue fund, firefighter pensions are budgeted under a trust fund,

and apparatus repair and replacement are budgeted under the city’s internal service ER&R fund. Overhead

(such as accounting, human resource, and legal services) is accounted for in various General Fund

departments and is not allocated to the fire budget. Capital improvements to buildings are accounted for in a

Public Building Improvements Fund.

2013 2014 2015 2016 2017 2018

Total Expenditures $4,880,596 $4,868,431 $4,856,243 $4,890,579 $5,153,706 $5,629,192

(0.25)% (0.25%) 0.71%

5.38%

9.23%

$2,000,000

$2,500,000

$3,000,000

$3,500,000

$4,000,000

$4,500,000

$5,000,000

$5,500,000

$6,000,000


124

Funding for fire and EMS services varies by fund. General Fund services are largely supported by a variety of

taxes, of which the bulk are comprised of property, sales, business and occupation, and utility taxes. The EMS

fund is primarily supported by EMS availability fees and ambulance service fees. Firefighter pensions are

supported by a portion of the City’s general property tax levy and a fire insurance premium tax, and the ER&R

fund is supported by payments from each participating department.

Figure 88 shows modest expenditure growth and healthy fund balances in the two primary funds. Note that

these numbers have been updated by Finance staff. The 2018 General Fund balance is 40 percent of budgeted

expenditures and the 2018 EMS Fund balance is 22 percent of expenditures. At minimum, an agency should

keep three months (25%) of expenditures in cash on hand.

Figure 88: Aberdeen Expenditures and Fund Balances

Expenditures and Balances

2013 2014 2015 2016 2017 2018

Actual Actual Actual Actual Actual Actual

Expenses—Fire Services $1,786,416 $1,770,123 $1,778,951 $1,685,663 $1,950,727 $2,048,303

Expenses—EMS $3,094,180 $3,098,308 $3,077,292 $3,204,916 $3,202,979 $3,580,889

Total Services $4,880,596 $4,868,431 $4,856,243 $4,890,579 $5,153,706 $5,629,192

Budget

General Fund Balance $6,205,551 $5,873,362 $5,898,838 $6,391,174 $6,892,111 $5,797,303

EMS Fund Balance $257,360 $401,301 $608,416 $835,714 $935,121 $768,045

Forecast

We forecast Aberdeen’s various expense categories using a variety of methods, according to what best fit the

data. Linear growth modeling, historical average growth, simple inflation (at 2.5 percent), and no growth

average of previous expenses were all used. On the revenue side, we used a linear growth model on

ambulance fees and a lower average growth rate for property taxes (treating it as a stand-alone agency). We

further assumed both a $1.50 regular levy and a $0.50 EMS levy for property tax revenues with 1 percent

annual growth plus new construction. Based on this fairly simple model, Aberdeen could see moderate, but

growing deficits as a stand-alone district with an EMS levy. This indicates that an Aberdeen Fire District may

be better served by a slightly larger M&O levy or some other funding scenario.

As mentioned above, this forecast treats the department as if it were a stand-alone agency; we are making no

forecasts about Aberdeen’s actual General Fund or EMS Fund. Dangers include capital expenses that are not

forecast in this model, and the potential for high inflationary pressures on wage and benefit growth (see Figure

89).


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Figure 89: Aberdeen Forecasts

Assumed Revenues Projected Expenditures

2019 2020 2021 2022 2023 2024

Projected Projected Projected Projected Projected Projected

Expenses—Fire Services $2,191,765 $2,331,668 $2,464,666 $2,601,147 $2,735,917 $2,871,573

Expenses—EMS $3,575,596 $3,656,279 $3,757,059 $3,837,939 $3,918,921 $4,000,010

Total Services $5,767,361 $5,987,947 $6,221,725 $6,439,085 $6,654,838 $6,871,583

Property Taxes $1,956,626 $1,983,589 $2,010,858 $2,038,430 $2,066,305 $2,094,482

Amb. Fees & Contracts $3,521,424 $3,615,897 $3,711,793 $3,809,719 $3,907,440 $4,006,291

Total Revenues $5,478,050 $5,599,486 $5,722,650 $5,848,149 $5,973,745 $6,100,773

Net Surplus (Deficit) ($289,311) ($388,462) ($499,075) ($590,936) ($681,093) ($770,810)


126

Hoquiam

Summary

The City of Hoquiam’s Fire Department spent $3,152,124 in 2017, providing fire and emergency medical

services to a population of 8,560 covering 13.3 square miles. They provide these services with two stations

and a total of 22 personnel (8 in fire and 14 in EMS). The department has been stable, with little-to-no growth

in call volume or personnel since 2011.

In addition to fire suppression, the department provides fire prevention, fire investigation, plan reviews, code

enforcement, public education, and emergency medical service to the citizens of Hoquiam and contracted

jurisdictions outside the city limits. Like Aberdeen, Hoquiam provides fire and EMS services to several

surrounding jurisdictions. Most of the contracts are for Ambulance services and fees are charged on a per-

dispatch basis. In 2017, the total EMS contract receipts came to 126,000, or about 4 percent of total

expenditures; the department also received $12,900 in 2017 for providing fire services to District #6.

Since it is a City department, there is no direct connection between the property tax levy or other tax revenues

and the fire department’s services. That said, if a $1.50 general levy and a $0.50 EMS levy were applied to the

city’s assessed value, they would accrue a combined $885,000. With the additional $1.8 million in

ambulance/EMS fees the department receives, it would conceivably have a total revenue of about $2.865

million, which would be $287,000 short of its 2017 $3.152 million expenditures.

The City does not allocate overhead expenses within its General Fund, so the department’s budgeted costs

appear lower than they would if it were a separate agency. There are a variety of valid ways to estimate how

much of the overhead costs are attributable to the fire department, and each would likely produce a different

result. A simple way is to simply take the total General Fund costs for the City that are administrative in nature

(Legislative, City Hall, Finance, IT, Attorney) as a percent of the total General Fund expenses (about 9.9%) and

apply that percentage to the fire department expenses of $967,487 in 2017. This results in an additional fire

expense of $95,554. This would bring the total shortage discussed in the previous paragraph to $383,000.

Over the past 6 years, the department’s budget has increased on average 2 percent per year, and only 7.3

percent overall (see Figure 90). Given inflationary pressures seen elsewhere, this is modest growth, indicating

active cost control measures.


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Figure 90: Total Fire/EMS Expenditure Growth

Capital Improvements and Debt

Like Aberdeen, Hoquiam manages its vehicle fleet through its Equipment Rental and Equipment Rental

Reserves funds. The Fire Department and EMS Fund each pay into the Equipment Rental Funds for their

portions of the activities. Large purchases of fire trucks and the like are funded through debt issuances. They

are currently paying on two debt instruments—a voter approved 2011 bond for a new ambulance and

reconditioning an existing ambulance, and a 2017 bond on a new fire truck that expires in 2028. Both bonds

are supported by special levies totaling $0.4425 per $1,000 assessed value.

Additional to bonded debt, the City has liabilities for compensated leave, pension liability and other post-

employment benefits—the amounts attributable to the fire department are unknown. Pensions are managed

through the Fire Pension Fund, which has seen a downward trend in annual expenditures.

Budgetary Review

The City of Hoquiam operates on a cash basis (versus accrual) and budgets on a biennial cycle. Fire and EMS

services are budgeted in several areas. Fire services are budgeted as a department within the General Fund,

EMS services are budgeted under a special revenue fund, firefighter pensions are budgeted under a trust fund,

and apparatus repair is budgeted under the city’s internal service ER&R fund. Apparatus replacement occurs

in the fire and EMS department budgets, though savings for this activity occur in the ER&R fund. Overhead

(such as accounting, human resource, and legal services) is accounted for in various general fund departments

and is not allocated to the fire budget.

Funding for fire and EMS services varies by fund. General Fund services are largely supported by a variety of

taxes, of which the bulk are comprised of property, sales, business and occupation, and utility taxes. The EMS

Fund is primarily supported by ambulance service fees. The majority of the Pension Fund is supported by

transfers from the City’s General Fund, and the ER&R Fund is supported by payments from each participating

department.

2013 2014 2015 2016 2017 2018

Total Expenditures $2,980,155 $3,397,456 $2,828,886 $2,934,927 $3,152,124 $3,200,477

14%

(16.7)%3.7%

7.4%1.5%

$2,000,000

$2,200,000

$2,400,000

$2,600,000

$2,800,000

$3,000,000

$3,200,000

$3,400,000

$3,600,000


128

The 2015–16 budget notes that B&O is the second largest single revenue source, the bulk of which comes

from just four companies. The City’s dependence upon relatively few businesses is a cause for concern and

leaves it vulnerable to changes in the status of those companies. While B&O taxes make up only 6.5 percent

of General Fund revenues, this comment is nevertheless striking and should serve as a cautionary warning

about the resilience of the City’s economy.

Figure 91 shows modest expenditure growth overall, and a modestly healthy general fund balance. The 2018

General Fund balance is 23.5 percent of total expenditures, which is just shy of the minimum recommended

amount. The EMS Fund is not healthy. In fact, the EMS relied on loans from the ER&R fund in 2013, 2015, and

2017. The combination of zero fund balances and reliance on repeated inter-fund loans shows a fund that is

under severe stress and may not be unsustainable without significant changes. This concern is further

exacerbated by the fact that all of the expenditure growth since 2013 has occurred in the EMS side of

Hoquiam’s services.

Figure 91: Hoquiam Expenditures and Fund Balances

Expenditures and Balances

2013 2014 2015 2016 2017 2018

Actual Actual Actual Actual Actual Actual

Expenses—Fire Services $1,080,665 $1,571,936 $967,858 $909,568 $967,487 $957,327

Expenses—EMS $1,899,491 $1,825,520 $1,861,028 $2,025,359 $2,184,638 $2,243,150

Total Services $2,980,155 $3,397,456 $2,828,886 $2,934,927 $3,152,124 $3,200,477

General Fund Balance $998,848 $575,746 $1,308,417 $1,510,354 $1,934,081 $1,477,167

EMS Fund Balance $123 $0 $0 $0 $9,837 $334,512

Forecast

We forecast Hoquiam’s various expense categories using a variety of methods, according to what fit the data

best. Linear growth modeling, historical average growth, simple inflation (at 2.5%), and no growth average of

previous expenses were all used. On the revenue side, we used a linear growth model on both property taxes

(treating it as a stand-alone agency with a combined $2.00 per $1,000 levy), and 2 percent inflation on

ambulance fees. Based on this fairly simple model, Hoquiam could see deficits starting at around 10 percent

of expenses and growing to 13 percent over six years as a stand-alone district with an EMS levy. This indicates

that a Hoquiam Fire District may be better served by a slightly larger M&O levy or some other funding scenario.

As mentioned above, this forecast treats the department as if it were a stand-alone agency; we are making no

forecasts about Hoquiam’s actual general fund or EMS fund. Dangers include capital expenses that are not

forecast in this model, and the potential for high inflationary pressures on wage and benefit growth (see Figure

94).


129

Figure 92: Hoquiam Forecasts

Assumed Revenues Project Expenditures

2019 2020 2021 2022 2023 2024

Projected Projected Projected Projected Projected Projected

Expenses—Fire Services $982,545 $1,011,345 $1,040,691 $1,070,597 $1,101,076 $1,132,142

Expenses—EMS $2,106,760 $2,162,914 $2,230,100 $2,296,526 $2,355,487 $2,416,618

Total Services $3,089,305 $3,174,260 $3,270,791 $3,367,122 $3,456,563 $3,548,761

Property Taxes $884,585 $902,770 $930,587 $958,405 $986,222 $1,014,040

Ambulance Fees & Contracts $1,892,577 $1,927,229 $1,962,573 $1,998,625 $2,035,397 $2,072,905

Total Revenues $2,777,162 $2,829,998 $2,893,160 $2,957,029 $3,021,620 $3,086,945

Net Surplus (Deficit) ($312,144) ($344,261) ($377,631) ($410,093) ($434,943) ($461,816)


130

FUTURE OPPORTUNITIES FOR COOPERATIVE EFFORTS

Having completed the evaluation of current conditions process, ESCI possessed the information necessary to

effectively evaluate the opportunities that exist for shared service delivery opportunities between the

participating agencies. There are many ways that fire departments can work together, ranging from very

fundamental sharing of resources and programs, up to and including legal assimilation of multiple agencies

into one in the form of a merger or consolidation, where feasible.

ESCI identified the following alternatives as those that are most feasible for application to these study

agencies:

• Maintain status quo

• Contract for services

▪ Administrative

▪ Functional

▪ Operational (Full Service)

• Regional Fire Authority

• Formation of a Municipal Fire District

The balance of this report examines the multiple options that are available to the study agencies and provides

insight and guidance where appropriate.

General Partnering Options It is often assumed that legal merger of agencies is the only alternative that is available. However, in general

terms, a number of different strategies are available to the client agencies when considering consolidation of

services. This begins with a do-nothing approach and ends with complete unification of the organizations into

what is, essentially, a new emergency service provider. A summary of the available methodologies is found

next, followed by identification of specific options that are considered feasible in these study agencies.

Status Quo

In some instances, changing nothing, or little, compared to current practice is the most desirable approach.

The client fire organizations can decide to continue as separate entities and not undertake any further

partnering opportunities. Remaining separate may be advantageous in that it provides each agency with the

most organizational control because, under this strategy, the agencies continue to make decisions considering

only unilateral issues. The strategy represents a perpetuation of the status quo, and it is useful as a comparison

by which to measure the other strategies.


131

The disadvantages of this approach are that the current challenges facing the agencies are not changed, the

opportunities for efficiency (either financial or service level) through greater collaboration are not realized,

and some duplication and overlap continues. In today’s environment, taxpayers typically hold their elected

officials accountable for delivering a quality level of service at an affordable rate, and expect creative thinking

to solve problems or achieve those ends. While “maintaining the status quo” is easy and involves the least

amount of impact to the agencies, it may well be one of the riskier decisions to make politically.

Contract for Services

There are three main types of contracts for service; administrative, functional, or operational consolidation.

Each of these is discussed in greater detail in the following sections.

Administrative Consolidation

An administrative consolidation occurs when two or more agencies maintain their separate legal status and

separate operational elements, but combine some or all of their administrative functions. Examples include

combining clerical, HR, IT, and/or financial functions while maintaining separate operational activities, or even

combining agency administration and management under one Fire Chief. An administrative consolidation is

accomplished legally through an Interlocal Cooperation Agreement between the agencies.36 There are no

limitations regarding crossing city or county boundaries.

The advantages of such a model include reduced overhead costs by eliminating administrative duplication; a

gradual alignment of otherwise separate operations under a single administrative head; less resistance to

change by the rank and file in the operational elements than other consolidation options; and singularity of

purpose, focus, and direction at the top of the participating organizations. This option lends itself well to a

gradual move toward a single, consolidated agency where differences in attitude, culture, and/or operation

are otherwise too great to overcome in a single move to combine.

The disadvantages include potential conflicts in policy direction from the various boards and councils;

potentially untenable working conditions for the Fire Chief (“one person, multiple bosses”); and increased

potential for personnel conflict as separate employee groups vie for dominance/supremacy.

Functional Consolidation

Functional consolidation, as the term is used here, would enable the client agencies to work together while

remaining as separate organizations. Under the Washington statutes, governmental entities may elect to

cooperate or contract for any lawful purpose, allowing individual organizations to share resources, improve

service, and save money at the program level. Most commonly, fire departments enter partnering agreements

for programs such as firefighter training, fire prevention, closest force response, and administrative/support

services. As has been recommended throughout this report, ESCI has identified a number of program level

activities that can, and should, be undertaken collaboratively between the client agencies, regardless of future

decisions surrounding a higher level of integration.

36 RCW 39.34.030.


132

In many cases, functional consolidation is sufficient to accomplish the cooperative goals of the agencies

without considering operational agreements or integration. It is common in the industry to functionally join

such activities as purchasing, firefighter training, fire prevention, public education, apparatus maintenance,

and command response assistance. The keys to success of a functional consolidation strategy lie in a trusting

relationship between partner agencies, the completeness of the agreement that sets up the program, and a

cooperative approach to the management of the program.

For a functional consolidation, the advantages are greater opportunities for efficiency; an opportunity to

reinvest redundant resources into those areas lacking in resources and a closer working relationship between

members of the agencies in the consolidated function(s) that can spill over to other unrelated activities in the

otherwise separate agencies. This type of collaboration may segue to greater levels of cooperation. Barriers

can be broken down as members of each agency realize that the other agencies’ members “aren’t so different

after all.”

A disadvantage is that interaction by and between line personnel of different agencies increases the potential

for friction. Numerous details must be worked out in advance of such a contract, including but not limited to

work rules, employee assignments, volunteer opportunities, office location, logos, asset allocation, authority,

and even the name of the consolidated function. Further, independence and autonomy are lost in the

consolidated areas, spilling into other seemingly unaffected areas.

Operational (Full Service) Consolidation

This partnering option takes the next step in the continuum of closer collaboration. In this case, all operations

are consolidated under a single organization that serves all participating agencies. The agencies remain

independent organizations from a legal/political/taxing standpoint; but from a service level standpoint, the

organization operates as one agency. Like other strategies listed, an operational consolidation is accomplished

legally through an Interlocal Cooperation Agreement.37

Under an operational consolidation, governance of the client agencies would remain as it is at the City Council

and Board level. However, this strategy largely joins the entities, operationally, through the execution of a

more comprehensive interlocal cooperation agreement. The resulting organization features a single

organizational structure and chain of command.

Depending on the form of the agreement(s) establishing the organization, employees and members of each

organization may remain with the original agency or, alternatively, they may be transferred to one of the

other agencies.

37 Ibid.


133

Operational consolidation means that, regardless of their overarching governance structure, the agencies

become one in terms of how day to day operations are performed. One Fire Chief oversees a blended

organization. This option requires a significant commitment toward a full consolidation and is usually done as

a last sequential step toward full consolidation as the administrations and policy-making bodies work out the

last details.

For an operational consolidation, the advantages are that the greatest opportunity for efficiency (not

necessarily cost reduction) is typically in the operational element where service is delivered to the

communities; and the level of trust and cooperation required to make implementation of this option

successful implies a near-readiness to take the next step to full integration.

The disadvantage is that administrators and policymakers must share power and gain consensus where they

once had unilateral authority to control and implement. If there are multiple bargaining unit agreements, they

would have to be aligned. Further, it becomes difficult to determine which agency would be the contractor.

In all three versions of the foregoing types of interlocal agreement, the participating agencies can establish an

oversight board made up of appointees of the governing bodies involved in the interlocal agreement. The joint

board can be established with their scope of authority granted to them by the separate governing bodies

involved in the interlocal agreement.38

Regional Fire Authority

Unique to Washington—and only a few other states—is the formation of a Regional Fire Authority (RFA). An

RFA is a new entity whereby fire agencies, whether districts, cities or a combination, fall under this new

structure with a new tax base, a new operational plan, and a new legal framework.

If agencies contemplate forming an RFA, it is usually wise to begin meeting informally to discuss and address

issues in advance of initiating the first formal step in the process. Most successful efforts start with establishing

exploratory or steering committees composed of a wide variety of stakeholders to determine the feasibility

of creating an RFA far in advance of forming the actual Planning Committee. This study may also serve that

purpose. Should the decision be made to move forward with RFA formation, the first legal step is the

formation of a Planning Committee, considered to be the most important component of the process. The

Planning Committee is charged with establishing the RFA plan, which specifies how the RFA will be funded,

operated, and governed. The RFA plan should be considered the “charter” or “constitution” of the new

agency.

The Planning Committee is comprised of three elected officials appointed from each agency, assuring an equal

voice in the decision-making process. Moving forward with the formation of an RFA also requires approval by

the affected governing bodies prior to the initiative being put before the voters.

38 RCW 39.34


134

Funding Mechanisms

A key consideration of the RFA formation decision is funding. The RFA plan will identify funding sources that

may include some or all of the following:

• Fire levies

• EMS levies

• Excess levies

• Benefit charges

• Bonds for capital purchases

Facilities and Equipment

The ownership or transfer of ownership of capital assets is not prescribed by law and will be determined by

the Planning Committee. Although ownership of facilities and equipment will most likely be transferred to the

newly formed RFA, the responsibility for bonded indebtedness for capital assets will remain with the

originating agency until the debt is satisfied.

Staffing and Personnel

Under an RFA configuration, employees and members of the agencies joining forces in the RFA become

employees and members of the new organization, including career and volunteer personnel. Unless an

agreement for different terms of transfer is reached between the collective bargaining representatives of the

transferring employees and the participating fire protection jurisdictions, employees will retain the rights,

benefits, and privileges that they had under their pre-existing collective bargaining agreements.39

Roles and responsibilities assigned to agency personnel may change in a newly formed RFA when

modifications are necessary in the interest of service delivery requirements. For this reason, involvement of

labor and volunteer organization representatives from the onset of the process is essential.

Governance and Administration

A Regional Fire Authority is governed by a single governance board. The number of board members and the

length of their service terms are determined by the Planning Committee consistent with applicable statutes.

The statute authorizing the formation of an RFA does not place limitations on the number of members serving

on the board, leaving that decision to the Planning Committee and, ultimately, the voters. ESCI is familiar with

one RFA in Washington State that initially had nine board members.

Administration of the new RFA, once established, becomes the responsibility of the newly established

governing board. The Planning Committee, however, will include in its body of work identification of the

composition of the RFA’s administrative staff. The Fire Chief and his/her command staff, as agreed to by the

Planning Committee, will subsequently report to the governing board.

39 RCW 52.26.100 (6)


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Legal Considerations

A number of important legal considerations must be taken into account in the formation of a Regional Fire

Authority. They are summarized below:

• Regional Fire Protection Service Authority Plan—Planning Committees are tasked with forming the

RFA plan. The RFA plan outlines the plan for governance, financing, operations, asset transfers, and

other considerations and is the plan that the voters are asked to approve when voting on the

formation of the RFA.

• Formation Procedures—Like any other type of significant consolidation, the formation of RFA requires

careful planning. Because the RFA creates a new entity, there is an added layer of complexity to the

planning. The new entity will need to register with the Internal Revenue Service (IRS), establish new

accounts with the County and vendors, contracts will need to be assigned and negotiated, labor

agreements need to be negotiated, payroll systems may need to be established, and so on. In other

words the formation of a new entity can be incredibly time intensive and attention to detail is critical.

The formation of an RFA is not subject to review by a Boundary Review Board or a county legislative

authority. The formation of an RFA is, however, likely subject to compliance with the State

Environmental Policy Act (SEPA). Legal counsel familiar with RFAs should be obtained to guide

policymakers in the process.

The advantages of this option are that it allows agencies to retain the strengths they bring to the new agency,

minimizes the weaknesses of each agency, and may allow for establishing new “best practices” not currently

provided by any of the participating agencies alone. It facilitates a contemporary look at services, resources,

and costs, finding the right balance for the community. It retains (or has the potential to retain) the

policymakers of the participating agencies in a governing board (including participating cities), thus utilizing

the vision and commitment that initiated the implementation of this option. Finally, it creates an opportunity

to “right-size” the revenue with the cost of operation, and it provides an active role for the citizens in setting

their service level and costs.

The disadvantages of pursuing this option are the loss of autonomy for each participating agency; the loss of

a familiar structure (although RFAs operate almost identically to a fire district); the investment of time and

effort to develop an RFA plan can be rendered moot by the voters; and funding options are not significantly

better for RFAs than they are for fire districts.

Formation of a Municipal Fire District

Municipalities can form an independent fire district with the same boundaries as the city that initiated the

formation. The process requires introducing a resolution by the city council establishing the ballot measure

proposing formation of the fire district and any other provisions determined by the council as authorized by

the statute. The formation is voted upon by city voters and a simple majority authorizes the creation (unless

the funding mechanism includes a benefit charge, in which case, a 60 percent favorable vote is required).


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The city council acts as ex officio board members until or unless the fire district elects its own, which can be

provided for by city council action in the formation of the initial resolution, or at any time after formation, by

action of a majority of the city council. In the latter case, the city council can relinquish governance authority

to an appointed board until such time as independently elected board members can be voted into office.

The amount of property tax levy rate to fund the fire district is intended to be deducted from the city’s

maximum statutory property tax levy rate. The assets of the municipality dedicated to provide fire and EMS

services to the city must be transferred or credited to the fire district, including all employees. The intent of

the statutory provisions is to provide transparency, prevent double taxation, avoid duplication of investment

(i.e., asset transfers), and provide for a governance structure that focuses exclusively upon fire and EMS

service delivery within the city separate and distinct from other municipal services.

The advantages of pursuing this option are that fire and EMS service delivery becomes a separate,

independent governing structure with a separate, dedicated funding stream. It maximizes the use of already

spent infrastructure in the city for this service by transferring those assets to the district. Employees are not

put at risk and are kept whole in the transition.

The disadvantage of pursuing this option is that it is a brand-new statute and there is no track record of any

community implementing it. In this case, the first city pursuing this will find any flaws in the statute, which

may not be beneficial to either entity. If the newly formed fire district does not levy its full statutorily

authorized property tax levy rate initially, but does so at a later date, the city will be required to reduce its

maximum authority for property taxes at that time, which may preclude planning for the economic impact.


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Strategies for Shared Services In the following section, the strategies for shared services identified previously are further detailed and their

feasibility is evaluated.

The decision to combine entities, contract, or create a new entity can be a daunting task. When those entities

have disparate cultures and financial capabilities, the process becomes even more complex and challenging

to accomplish. The following strategies presented are analyzed for their impact on sustainability and/or

service delivery while identifying opportunities for increased efficiency wherever possible. ESCI recognizes

that service delivery and its financial sustainability must be viewed with equal importance.

Strategy A: Status Quo

As described earlier, this is essentially a do-nothing option. However, both cities have likely made temporary

decisions or deferred decisions awaiting the result of this study, such as delaying the filling of vacant

administrative or support positions. If the cities ultimately decide to maintain a status-quo approach, there

will be future decisions that will have to be made for the agencies to move forward effectively.

Given the amount of interaction and inter-city collaboration that is already in place between the client

organizations, a status-quo approach would most likely be configured in a manner that would continue that

same level of cooperation. However, the organizations could decide to lessen or withdraw from current

shared practices. Doing so is viewed as a step backwards and would waste the valuable efforts that have been

undertaken in recent years between the cities.

Both cities will need to take a careful look at their future and where their organizations are headed if they

continue operations as currently in place. In some cases, aspects of their operations may not be sustainable

in the near future; therefore, the organizations are encouraged to closely scrutinize and evaluate current

conditions in this context. Particular focus on financial projections, referencing the fiscal analysis in this report

along with other sources, is recommended.

Level of Cooperation

The level of cooperation currently in place is expected to continue, such as mutual and automatic aid

agreements, as well as any current sharing of training and other resources.

Estimated Timeline for Completion

Implementation is immediate, once the decision is made, since this is a status quo strategy. The issues

identified in the introduction of this strategy will need to be addressed, but should not hinder maintenance

of the status quo.

Affected Stakeholders

City councils and their constituents will retain their current services at their current costs.


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Summary/Objective of Strategy

With a decision to maintain status quo, the cities will have made a decision to maintain the value derived from

existing shared services. There may be small, specific enhancements to existing collaboration, but no major

new shared services are anticipated under this approach.

ESCI Guidance

Elected officials and administrative staffs should ensure that discussions and decisions related to this strategy

focus on the desired outcomes and best interests of the communities served. A decision to maintain status

quo does not necessarily mean future collaborative efforts are off the table. Efficiency and enhancement of

services should continue to drive decision-making.

Special Considerations

This strategy continues to afford the elected officials with a high level of control. However, as described in the

previous section, key decisions must be made by each of the cities if this strategy is adopted.

Needs identified in the current conditions section of this report list areas in which the cities can, and should,

make improvements. Those areas should be carefully evaluated as a part of the process of determining future

needs under a status-quo approach.

Policy Actions

Other than the issues identified previously under special considerations, no other policy decisions must be

made related to implementation of this strategy.

Fiscal Analysis

The status quo represents no shift in cost or change in efficiency.

Issues & Impacts

The implementation of this strategy creates no additional issues or impacts other than those listed in special

considerations.


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Strategy B: Contract for Services


A contracted services approach is most often applicable when agencies want to work more closely together

but are either not ready or are unable to integrate entirely. This strategy may be applied to administrative

functions as listed earlier and/or to exercise a functional consolidation for identified support services, while

the two cities maintain autonomy with separate governance and separate taxing authority. Finally, it may be

applied to a contract for full services. Depending on the selected application, a single Fire Chief may provide

the administrative services for the contractually combined departments as an example.

The city councils continue to govern the separate departments independently, levying their own taxes at their

own levy rates. This integration may be limited to the Fire Chief, or may include all administrative functions

(and the personnel serving those functions) as well as support functions, such as facilities/fleet maintenance,

fire prevention, and/or training.

At its highest level, contracted service approaches may be expanded to include operational service delivery.

That is, one entity contracts for the entirety of its fire protection, EMS, and related services, delivered

exclusively by the provider agency. The contracting agency places full responsibility for all services, based on

identified performance measures, on the provider and retains no service delivery function of its own.

Success of an administrative, functional, or operational contract for services (interlocal cooperation

agreement) strategy is built upon 1) an essential trust relationship between the partner agencies; 2) the

thoroughness of the program agreement; 3) a collaborative approach to the management of the program(s);

and 4) community understanding and support. Since the cities already have a great deal of collaborative

history, the foundation to build from has been created.

The approach requires in-depth, multi-level, and multi-functional planning, review, external and internal

discussions, collaboration, and agreement among the city council, and the administrative staff members of

both participating agencies. This strategy does not require public approval at the ballot box, but is negotiated

between the city councils.

ESCI notes that while city councils will continue to govern their own departments, the level of unilateral

control is decreased. Also, the management team of the contractually unified sections should report to the

individual councils on the performance of these new agreements.


This timeline can take six months to negotiate and be prepared to execute, or can take as long as a year,

depending on the level of complexity of the contract for services and bargaining unit implications that require

separate negotiation. New issues may arise from the planning process, so the planning should not be short-

cut due to presumed familiarity with the other party.

Affected Sections

Depending on the type of contract for services, the affected sections may include administration, training, and

operations.


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While all agency members and the citizens served are affected in some manner, council members and agency

staff members within the affected sections will realize the most significant impacts.


The objective should be seamless integration of the identified functions across the jurisdictions by means of

an Interlocal Cooperation Agreement, as provided for under RCW 39.34.

ESCI Guidance

The client cities face similar financial challenges given current conditions, though Hoquiam’s are more severe.

While the listed areas for partnering are found to be duplicative in many instances, how those areas operate

in each city may vary significantly with the other due to differing demographics, geography, and community

culture.

In preparation for such a direction, the leaders of both agencies must establish and conduct regular joint

meetings for the purpose of establishing the parameters of an administrative, functional, or full-service

contract. This includes workload analysis to ensure greatest effectiveness while maintaining proper balance.

If this option is pursued, ESCI recommends that the Fire Chiefs convene an ad hoc steering committee for the

purpose of developing proposed common policies, performance standards, and functional plans.

Should the concept of contracted services be expanded into operational areas, the degree of collaboration

between the Chiefs is escalated substantially. Operational guidelines, response procedures, and many

additional factors will need to be compared and brought under a single, fully integrated operational strategy.


Council members should understand that pursuing any of the contractual options is complex, labor-intensive,

and challenging; as such, it is often a precursor to a more formal consolidation.

The process of developing an administrative or functional contract can expose administrative rigidity resulting

from political complexities of the arrangement. Given accountability to two political bodies, administrative

leaders can be pulled in multiple directions; they may also be limited by contractual requirements in their

ability to adjust to environmental changes. Consequently, conflicting policy directives may sometimes be

troublesome. These challenges underscore the importance of the foundational political relationships, the

contractual agreement and the skills of management to ensure success.

Internal staff in the affected sections will likely require some time to adjust to new processes and reporting

relationships. The community may notice changes in who they deal with and different processes likely

employed from this strategy.

Policy Actions

The city councils will need to develop, approve, and implement an interlocal cooperation agreement.


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Fiscal Analysis

Depending on the selected approaches, the initiatives described above may result in actual cost reduction

(economies of scale with volume purchasing, for example) or cost avoidance at the very least (eliminating the

need to purchase what another participating agency already has, for example), allowing those funds to be

redirected toward other agency needs. The same may apply if the needed number of support staff positions

decreases.

The costs for the combined functions, to the extent they are equal across the cities, should be split equally

between them. This includes any fiscal windfall and any net new costs. To the extent there are weighted

distribution of costs (and benefits) due to disproportionate cost or benefit, such distribution should be based

on weight factors directly tied to the function shared and should follow guidance provided in the cost

allocation discussion, which follows.

Cost Allocation Options

What follows is a listing of system variables that can be used (singly or in combination) to allocate cost

between allied fire departments. Each option is summarized by the concept, its advantages and

disadvantages, and other factors that should be considered. Regardless of the option(s) chosen to share the

cost of service, the resulting interlocal cooperation agreement needs to address the formula chosen and the

rationale behind it, as well as any exclusion, such as grant funded expenditures. In addition, service contracts

often must reconcile the exchange of in-kind services between the participating cities.

Area

The cost of emergency service can be apportioned based on the geographic area served relative to the whole.

For instance, the jurisdictional boundaries of the cities represent about 25 square miles. The following figure

displays the services area in square miles and the percentage for each jurisdiction, which represents the

percentage of total cost share.

Figure 93: Cost Allocation by Service Area (2017)

Jurisdiction Service Area

in Square Miles % of Total

Aberdeen 11.7 46.9%

Hoquiam 13.27 53.1%

Total 24.97 100%

Apportionment founded on service area alone may work best in areas that are geographically and

developmentally homogenous. The client cities in this case are not considered homogenous.

Pro: Service area is easily calculable from a variety of sources. Size of service area generally remains constant with few if any changes.

Con: Service area does not necessarily equate to greater risk or to greater workload. Indeed, density is the greater driver of workload.

Consider: Service area may be combined with other variables (such as resources, assessed value, and number of emergencies) to express a compound variable.


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Assessed Value

The assessed value (AV) of cities is established by tax assessors under laws of the state. Usually, higher-valued

structures and complexes carry a greater risk to the community from loss by fire; consequently, assessed value

also tends to approximate the property at risk within an area. Fire departments are charged with being

sufficiently prepared to prevent property loss by fire. Therefore, the cost of contracted fire protection may be

apportioned relative to the assessed value of the allied jurisdictions. In this case, high valued buildings may

pose a low risk to the community or to the fire department due to built-in fire protection features. Typically,

AV is used to apportion cost of shared service by applying the percentage of each partner’s AV to the whole.40

The following figure illustrates the allocation of cost by the assessed value of the cities, which represents the

percentage of total cost share.

Figure 94: Cost Allocation by Assessed Value (2017)

Jurisdiction Assessed Value % of Total

Aberdeen $908,717,485 68.7%

Hoquiam $413,934,753 31.3%

Total $1,322,652,238 100%

Pro: AV is updated regularly, helping to assure that adjustments for changes relative to new construction,

annexation, and inflation are included. Because a third party (the assessor) establishes AV in accordance

with state law, it is generally viewed as an impartial and fair measurement for cost apportionment. Fire

protection is typically considered a property-related service; thus, allocation tied to property value has

merit.

Con: AV may not reflect the risk associated with certain properties. Some high value properties present low

risk. Some comparatively lower value properties may not fully represent the life risk, such as nursing

homes or places of assembly, which might dictate more significant use of resources. In addition, some

large facilities may seek economic development incentives through AV exemptions or reductions.

Adjustments may need to be made to AV if such large tracts of exempt property in one jurisdiction cause

an imbalance in the calculation. Last, AV typically includes the value of land, which is not usually at risk

of loss by fire.

Consider: Discount AV by factoring it into a multi-variable allocation formula. As an additional consideration,

assessors usually establish the AV in accord with the property tax cycle, which can lag somewhat behind

the budget cycle of local cities and the time when service contracts are reviewed or negotiated.

40 AV used is the total assessed value of the service area.


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Deployment

The cost for service is based on the cost of meeting specific deployment goals. Deployment goals may be tied

to the physical location of fire stations, equipment, and personnel (strategic deployment) or by stating the

desired outcome of deployment (such as is contained in a standards of cover). A strategic (input) goal could

specify the location of stations, engines, ladder trucks and number of active volunteer firefighters on the

roster, for example. A standards of cover might state the desired outcome (output) as three engine

companies, one ladder company, a battalion chief, an aid unit, and fifteen emergency workers on the scene

of all structure fire emergencies within 8 minutes, 90 percent of the time. While both strategic and outcome

goals can be used effectively to assist in allocating cost, ESCI views outcome goals to be more specifically

linked to the quality of service. This alternative however, is highly variable due to the independent desires of

each community in regard to outcome goals.

This type of scoring system for each agency allows the ranking of each area based on the assigned apparatus

and facilities required to deliver the staffing and required fire flow. The following illustrates the allocation of

cost by the number of resources deployed to serve each jurisdiction, including fire stations, frontline engines,

and ladder trucks (not including reserve apparatus).

Figure 95: Cost Allocation by Resource Deployment (2017)

Jurisdiction Facilities Engines &

Aerials Total % of Total

Aberdeen 2 4 6 50.0%

Hoquiam 2 4 6 50.0%

Total 4 8 12 100%

Pro: Deployment is intuitively linked to the level of service. The outcome of deployment based on a standards

of cover can be monitored continuously to assure compliance. Such deployment can be adjusted if

standards are not met. This assures the continuous quality of emergency response throughout the life of

a service contract.

Con: Deployment may not equate to better service because such goals are prone to be used for political

reasons and may not be used for quality of service reasons. Outcome goals require common reporting

points and the automatic time capture of dispatch and response activities to assure accuracy. Record

keeping needs to be meticulous to assure the accurate interpretation of emergency response outcomes.

Consider: Contracts for deployment-based fire protection should recognize that there is required

infrastructure, such as administrative or overhead costs, as well as capital asset cost, depreciation, rent,

and liability insurance. Thus, this allocation strategy is best used as part of a multi-variable allocation

formula.


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Service Demand

Service demand may be used as an expression of the workload of a fire department or geographic area. Cost

allocation based on emergencies would consider the total emergency response of the service area and

apportion system cost relative to the percentage of emergencies occurring in the jurisdictions.

Figure 96: Cost Allocation by Service Demand (2017)

Jurisdiction Service Demand % of Total

Aberdeen 5,218 61.3%

Hoquiam 3,295 38.7%

Total 8,513 100%

Pro: Easily expressed and understood. Changes in the workload over the long term tend to mirror the amount

of human activity (such as commerce, transportation, and recreation) in the corresponding area.

Con: Emergency response fluctuates from year to year depending on environmental and other factors not

directly related to risk, which can cause dependent allocation to fluctuate as well. Further, the number

of alarms may not be representative of actual workload; for example, one large emergency event

requiring many emergency workers and lasting many hours or days versus another response lasting only

minutes and resulting in no actual work. Finally, emergency response is open to (intentional and/or

unintentional) manipulation by selectively downgrading minor responses, by responding off the air, or

by the use of mutual aid. Unintentional skewing of response is most often found in fire systems where

dispatch and radio procedures are imprecisely followed.

Consider: Using a rolling average of alarms over several years can help to suppress the normal tendency for

the year-to-year fluctuation of emergencies. Combining the number of emergencies with the number of

emergency units and/or personnel required may help to align alarms with actual workload more closely;

however, doing so adds to the complexity of documentation. In a similar manner (and if accurate

documentation is maintained), the cities could consider using the total time required on emergencies as

an aid to establish the comparative workload represented by each jurisdictional area.

Fixed Rate

The use of fixed fees or rates (such as a percentage) to calculate allocation of shared cost is more common

between municipalities and independent fire districts. Occasionally, fixed-rate contracts involve the exchange

of in-kind services.

Pro: The concept is simple and straightforward. A menu of service options and the fees corresponding to those

alternatives can be developed by the contractor agency. The two cities can tailor a desired level of service

based on risk and community expectation by choosing from the various menu items.

Con: Partnering communities may change (i.e., population, jobs, commerce, structures, and risk) at divergent

rates, causing a disconnect between the rationales used to establish the fee and the benefit received. A

fixed-rate contract may be difficult to coherently link to the services provided and/or received, which can

lead to a lack of support by officials and the community.


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Consider: The cities need to assure that provision for rate adjustment is included in the agreement, including

inflation. The inclusion of administrative and/or overhead cost also requires statement, as does the

reconciliation of in-kind service exchange. The ownership and/or depreciation of capital assets should be

addressed, as should rent, utilities, and liability insurance. In the case of a fixed fee, the agreement should

establish how the participation of the other city in the partnership would affect cost.

Population

Payment for service can be based on the proportion of residential population to a given service area. The

following figure lists the population by jurisdiction and the percentage of the total number of individuals living

in each service area.

Figure 97: Cost Allocation by Population, (2017)

Jurisdiction Population % of Total

Aberdeen 16,740 66.2%

Hoquiam 8,560 33.8%

Total 25,300 100%

Pro: Residential population is frequently used by governmental agencies to measure and evaluate programs.

The U.S. Census Bureau maintains an easily accessible database of the population and demographics of

cities, counties, and states. The Office of Financial Management (OFM) provides annually updated

population numbers by jurisdiction.

Con: Residential population does not include the daily and seasonal movement of a transient population

caused by commerce, industry, transport, and recreation. Depending on the local situation, the transient

populations coming in (or going out) of an area can vary significantly, which can tend to skew community

risk. Residential population does not statistically link with emergency workload; rather, human activities

tend to be the linchpin that connects people to requests for emergency assistance.

For example, if residential population actually determined emergency workload, emergencies would

peak when population was highest within a geographic area. However, in many communities where the

residential population is highest from about midnight to about 6:00 a.m. (bedroom communities), that

time is exactly when the demand for emergency response is lowest. It turns out that emergency demand

is highest when people are involved in the activities of daily life—traveling, working, shopping, and

recreating. Often, the persons involved in such activities do not reside in the same area. Additionally,

simply relying on population will not account for the effects that socio-economic conditions have on

emergency service response activity.

Consider: Transient populations can be estimated by referring to traffic counts, jobs data, hotel/motel

occupancy rates, and, in some cases, park visitor statistics. Residential population plus transient

population is referred to as functional population. Where functional population is significantly different

from residential population, service agreements based on population should be adjusted to account for

it.


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Multiple-Variable Allocation

Frequently, even though everyone may agree on the benefit of allied fire protection, officials find it difficult

to reach an accord on the cost. The differences between community demographics and/or development,

along with changes that occur within the system over the long term, can cause the perception of winners and

losers. This can be especially prevalent when a single variable is used to apportion cost. A service contract

based on more than one allocation determinate may help solve these problems.

For example, ESCI is familiar with a 911 dispatch center that serves more than 20 fire agencies of all sizes and

types—large, small, metropolitan, and rural; on-duty career and on-call volunteer. Here, the service contract

includes three determinates applied to each agency.

Base charge: 10 percent of the dispatch center’s budget is divided equally between all agencies. This

charge is based on the acknowledgement that each agency is equally responsible to maintain the

dispatch center on continuous stand-by, irrespective of size of the agency or its use of the dispatch

services.

Usage charge: 45 percent of the dispatch center’s budget is divided between the agencies in

accordance with the number of emergency dispatches made for each during the preceding year. The

member agencies determined that this charge fairly assesses the overall use of the 911 dispatch

system by each.

Risk charge: 45 percent of the dispatch center’s budget is divided between the agencies in accordance

with the relative percentage of each department’s AV. The member agencies determined that this

charge is relational to each department’s community risk and that it is closely associated with the

overall ability to pay.

By apportioning the dispatch center cost over three variables, the members of this alliance have been able to

reach a long-term agreement that fits the diversity of the partnering agencies. Other partnerships in other

geographical areas may require a different solution involving different combinations of variables. In summary,

when choosing a cost-sharing strategy for partnered fire protection, it is important to keep any apportionment

formula fair, simple, and intuitively logical to assure that the public accepts and supports the endeavor.

Allocation Summary

The information provided previously serves as a detail of cost allocation factors. Given the lengthy discussion

provided with each option, ESCI has compiled the information into a summary table illustrating the

distribution of factors between the cities. These examples are for illustrative purposes and may be used as

part of a check for fairness of assigning the cost for service.


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Figure 98: Summary of Cost Allocation Factors by Percentage (2017)

Jurisdiction Area Assessed

Value Resources

Service Demand

Population

Aberdeen 46.9% 68.7% 50.0% 61.3% 66.2%

Hoquiam 53.1% 31.3% 50.0% 38.7% 33.8%

Total 100.00% 100.00% 100.00% 100.00% 100.00%

ESCI extrapolated the cost of emergency services using the 2017 fiscal year budgeted amounts for fire and

EMS using a multiple variable formula. In addition to the individual funding alternatives, multiple-variable

scenarios are also provided as examples of how this type of methodology can be modified and applied. The

following figures show three multiple cost allocations by variable and the weighted apportionment by

percentage. The first allocates costs on the basis of assessed value (50 percent) and service demand (50

percent).

Figure 99: 50% Assessed Value and 50% Service Demand (2017)

Jurisdiction Assessed

Value Service

Demand Allocation

Aberdeen 68.7% 61.3% 65.0%

Hoquiam 31.3% 38.7% 35.0%

Total 100.00% 100.00% 100.00%

The second example allocates the cost based on service demand (50 percent), resources (25 percent), and

assessed value (25 percent).

Figure 100: 50% Service Demand, 25% Resources, 25% Assessed Value, (2017)

Jurisdiction Service

Demand Resources

Assessed Value

Allocation

Aberdeen 61.3% 50.0% 68.7% 60.3%

Hoquiam 38.7% 50.0% 31.3% 39.7%

Total 100.00% 100.00% 100.00% 100.00%

Any or all of the variables can be used to develop the cost allocation formula, and the weights can be adjusted

to emphasize or de-emphasize each variable. The table below lists all of the variables as equally weighted and

results in the following multiple variable formulas:

Figure 101: All Variables at Equal Weights of 20% Each, (2017)

Jurisdiction Area Assessed

Value Resources

Service Demand

Population Allocation

Aberdeen 46.9% 68.7% 50.0% 61.3% 66.2% 58.6%

Hoquiam 53.1% 31.3% 50.0% 38.7% 33.8% 41.4%

Total 100.00% 100.00% 100.00% 100.00% 100.00% 100.00%


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Whichever formula is used, care should be taken to avoid identifying a cost and then developing a formula to

achieve the desired cost. While affordability is an important factor, the developed formula should reflect an

appropriately balanced approach to addressing the service needs of the two cities and allocating costs based

on the factors driving service decisions.

Issues & Impacts

• No permanent organizational commitment is made since this is a contract.

• All final decision-making power remains with individual organizations.

• Requires a collaborative approach to the management of the program(s) between the participating

administrations.

• Does not require public approval at the ballot box.

• Existing council positions are preserved.

• Administrative leaders can be pulled in multiple directions serving multiple masters.

▪ A joint powers board may be formed to minimize this effect

• Requires blending rules, regulations, and operating procedures.

• Efficiency in administration by eliminating duplication or reassigning duplicate resources.

• Efficiencies may be gained in fleet maintenance and training.


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Strategy C: Regional Fire Authority

As stated earlier in this report, a city cannot merge with a fire district. Regional Fire Authorities (RFAs) are

authorized by statute to create a relatively new governance model for the fire services of both cities and fire

districts.41 Essentially, an RFA operates in a very similar manner as a contract for services, but with shared

governance, voter approval, and the creation of an independent municipal corporation with its own taxing

authority and statutory framework.42 The two cities are eligible to be included in an RFA as they are within

“reasonable proximity” of each other.43


This strategy requires the highest degree of cooperation between the cities of any of the integration options.

Statutorily, it starts with the formation of a Planning Committee.44 The Planning Committee is required to have

three elected representatives from each participating agency. The RFA plan serves as the charter for the newly

formed entity and outlines the services, service level standards, budget, funding mechanism(s), governance,

and any other considerations deemed appropriate by the committee. It becomes the plan voters are asked to

approve when voting on the formation of the RFA.


While RFAs could technically be formed in as little as 90 days, it is more likely that the forming of an RFA

Planning Committee, the forming of an RFA plan, educating the constituents of the two cities, holding an

election, and transitioning from the current governance structure to the new governance structure can take

a year or longer.

Affected Sections

All sections of each fire department are affected in this strategy. Implementation of this strategy creates a

single fire agency.


Citizens currently served by the separate cities will see their service provided by a new agency, and may see

their services change as a result. Employees of each city will have their employer change, and will need to

engage in discussions with their current employers and the RFA planning committee to establish provisional

employment agreements in the event an RFA is formed.

41 RCW 52.26

42 Snure, Brian K. Fire Service Consolidations. Snure Law Office: Des Moines, WA, 2011.

43 RCW 52.26.020 (5)

44 RCW 52.26.030


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The elected officials from the participating cities are also affected. Since the governing statutes do not require

a specific number of governing board members to serve on an RFA, the RFA plan can call for as many or as

few as the Planning Committee deems appropriate. The RFA can either select from its existing elected

membership, or they can call for RFA commissioner districts, who will be elected from its respective districts

by the RFA voters. This may impact the existing elected officials of each agency.

While conventional wisdom calls for an uneven number of governing board members to make up the

governing board to avoid tie votes, ESCI is aware of two RFAs that were formed with an even number of

members; one with six and one with twelve members.

Personnel from both cities are likely impacted since the fire agency will be redesigned to take advantage of

efficiencies, develop a more effective deployment model, and the pooled resources are likely to modify the

dynamics for each of the separate cities.


This strategy combines two city departments into one agency. The objectives should be:

• A smooth transition from the two cities into a single, cohesive organization;

• Obtaining balanced representation from the two cities; and

• To provide depth of resources, strength of service, financial sustainability, and resiliency.

This strategy combines the two city departments into a single regional fire authority. Services would be

provided by the existing resources of the two cities, pooled and reconfigured to provide optimum services,

and governed by policymakers representing each participating agency. Once the RFA is formed, the

policymakers come together from the two cities as determined by the RFA plan, or from council wards to

ensure balanced representation, again as determined by the RFA plan.

ESCI Guidance

If the parties agree to pursue this strategy, it requires the Planning Committee to form and adopt an RFA plan

for action first by the elected officials of each city, then by the voters served by those cities as a homogenous

group. It would also be prudent to obtain legal counsel as the Planning Committee formulates the RFA plan

before submitting the finished product to the voters. It will also be necessary to communicate with existing

constituencies, both internal and external, to educate them on the value and benefits of pursuing this option.


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Transfer of personnel from a city to an RFA is outlined in RCW 52.26. Under an RFA configuration, personnel

from the cities joining forces become employees and members of the new organization (again, the term

“employees” is used here to identify both compensated and volunteer personnel, if applicable). Unless an

agreement for different terms of transfer is reached between the collective bargaining representatives of the

transferring employees and the participating fire protection jurisdictions, employees will retain the rights,

benefits, and privileges that they had under their pre-existing collective bargaining agreements.45 While silent

in the same statute, this requirement likely also pertains to non-represented employees.


It is a requirement of the statute to establish an RFA plan which addresses all of the various services, service

levels, governance, funding mechanisms, asset transfers, debt liabilities, and structure. The RFA Planning

Committee must determine whether all future changes to the plan are required to be submitted to the voters

for approval, no changes require voter approval, or some sections require voter approval and some only

require majority vote by the governing board. The difficulty is adopting a plan which makes clear the intent of

the parties without tying the hands of future elected officials if circumstances change which necessitate

modification. If those modifications are regarding the substance of the plan, it will require voter approval to

make the changes. In no circumstance can the plan exceed statutory authority.

ESCI recommends that dynamic components of the plan, such as service levels and performance, be addressed

in detail in a separate document by referral. In this way, the RFA plan addresses the specifics of service level

by reference to the separate document, noting that it is periodically reviewed and modified as necessary by

the governing board. Alternatively, the plan should state that these service levels and performance elements

are able to be modified by majority vote of the then existing governing board.

Policy Actions

RFAs do not change the boundaries of the participating jurisdictions. The participating jurisdictions may

continue to exist after the formation of the RFA (Hoquiam and Aberdeen certainly continue to exist as cities,

but without their own fire departments).

ESCI’s review and discussion of Washington State Law on this topic has been necessarily brief; only sufficient

to ensure that basic provisions for RFA formation exist. As always, we emphasize that we are not qualified to

give legal advice. We recommend that each city consult with legal counsel experienced in such matters before

undertaking this strategy.

45 RCW 52.26.100 (6)


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Fiscal Analysis

The purpose of this fiscal analysis is to provide a high-level assessment of the financial feasibility of the

formation of an RFA. The estimates and analysis presented are dependent on the outlined assumptions and

subject to change depending on actual factors that influence revenues and expenses. Key assumptions used

in the assessment are followed by high level estimates of revenues over five years. Specific implications of the

RFA strategy on the property tax levies for the Cities of Aberdeen and Hoquiam, as well as the tax rates for

the RFA are presented next. This section concludes with a summary of financial considerations associated with

the RFA strategy.

Key Assumptions

Revenues

The revenue assumptions used in the analysis of Strategy C: RFA follow. Property taxes represent the largest

source of revenue for the combined operations. Property tax revenue assumptions specific to the RFA strategy

include:

• An effective date of the RFA formation prior to August 1, 2019. Note that property tax collections are

fixed after August 1 each year. If the RFA is formed after August 1, property taxes would be allocated

to the RFA in its second year, and arrangements would need to be made with the cities to obtain

revenues in the first year. Note also that while the most recent reports of actual financial results for

the two cities date to 2017, we made forecasts for each agency to 2021 to concur with the assumed

formation date.

• A fire levy to the statutory maximum levy rate of $1.50 per $1,000 assessed value is collected in all

RFA areas beginning in 2020.

• The Hoquiam EMS levy is extended to cover Aberdeen as part of the RFA package put before the

voters at the full rate of $0.50 per $1,000 assessed value.

• Continuation of the existing bond levies collected from property owners in the appropriate areas

where the bond levies were approved.

• Voter approval of a six-year excess levy in August 2019 for collection beginning in 2020 with amounts

equal to the estimated amount needed to balance projected revenue with projected expenses.

Expenses

Expenses under the RFA strategy are assumed to be the same as the combined expenses of the predecessor

organizations plus assumed overhead as described in the Fiscal Analysis section (to provide for legal, HR, and

finance functions). Actual expenses under an RFA approach are likely to be different than these combined

expenses. However, in ESCI’s evaluation of existing staffing, equipment, facility, and operational conditions,

we did not find significant excess capacity that would suggest significant cost savings. While some expenses

are likely to be higher others are likely to be lower. Using the combined expense projection is considered

reasonable for purposes of this analysis.


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Forecast Results

The revenue forecast under the RFA strategy, using the identified assumptions, results in annual revenue that

is approximately $9,321,000 in 2020. A summary of the RFA strategy revenue projection is shown in the

following figure. Note that in addition to the EMS levy, a substantial excess levy would be necessary to support

projected expenses.

Figure 102: RFA Revenue Projections

RFA Assumed Revenue Sources

2020 2021 2022 2023 2024 2020–24 % Chg.

Regular Property Tax Levy $2,144,547 $2,172,799 $2,201,266 $2,229,949 $2,258,855 5.3%

EMS Property Tax Levy $714,849 $735,218 $755,587 $775,957 $796,326 11.4%

Other Taxes (M&O Levy) $1,050,008 $1,063,841 $1,077,778 $1,091,822 $1,105,975 5.3%

Ambulance Fees & Contracts $5,251,357 $5,381,460 $5,513,057 $5,646,184 $5,780,874 10.1%

Other Revenue $160,000 $160,000 $160,000 $160,000 $160,000 0.0%

Subtotal Operations $9,320,761 $9,513,317 $9,707,689 $9,903,912 $10,102,029 8.4%

Annual Percent Increase 2.1% 2.0% 2.0% 2.0%

Bond Levy $261,513 $183,283 $185,466 $187,665 $189,883

Total Revenue $9,582,273 $9,696,601 $9,893,154 $10,091,578 $10,291,912

The regular and excess levies decrease 5.4 percent over the five-year forecast period due to the 1 percent cap

on increases during a time when assessed values are forecast to increase more quickly (11.4%). The resulting

levy rates are shown in the following figure.

Figure 103: RFA Levy Rates, Projected

RFA Assumed Levy Rates

Combined Cities 2020 2021 2022 2023 2024

Total Assessed Value $1,429,698,036 $1,470,436,402 $1,511,174,767 $1,551,913,133 $1,592,651,498

Total Regular Levy $1.5000 $1.4777 $1.4567 $1.4369 $1.4183

Total EMS Levy $0.5000 $0.4926 $0.4856 $0.4790 $0.4728

Total Excess Levy $0.7344 $0.7235 $0.7132 $0.7035 $0.6944

Total Operating Levy Rate $2.7344 $2.6937 $2.6554 $2.6194 $2.5855

Impact on the Cities’ Regular Property Tax Levies

Formation of an RFA will impact the cities’ property tax levies by resulting in a net reduction in effective

property tax.

Statutory Maximum Property Tax Levy Rate.

If the cities join in the formation of an RFA their statutory maximum property tax levy rates will decrease from

$3.465 per $1,000 of assessed value (after accounting for the library district) to $1.965 per $1,000 of assessed

value (see following figure). The decrease is due to subtracting the RFA’s statutory maximum levy rate of $1.50

from the city’s statutory maximum levy rate.


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Figure 104: City Maximum Levy Rate Effect, RFA

2020 Levy Rate: RFA Strategy Levy Rate

City Statutory Base Levy Rate $ 3.375

Add Levy with Library District $ 0.225

Add Levy with Fire Pension Fund $ 0.225

Subtotal, Maximum Levy Rate $ 3.825

Subtract Actual Library Rate* $ (0.360)

Subtract RFA Regular Levy Rate $ (1.500)

Maximum Levy Rate—With RFA** $ 1.965

*Library may raise rate to $0.5 via lid lift, further limiting each city's levy capacity. **Fire Pension Fund to remain with city and is assumed to be $0.225, leaving $1.6 for general use.

While the cities’ maximum levy rate is reduced, so will their levy needs. ESCI strongly recommends that the

cities reduce their regular tax levies by an amount equal to the portion of property taxes formerly used to

fund their fire departments (see Figure 105). Aberdeen’s 2020 regular levy rate is estimated to be $3.1094,

while Hoquiam’s is estimated to be $3.3681. After subtracting the general fund tax revenue allocated to fund

the fire departments ($2.4246 Aberdeen and $2.2678 Hoquiam), revenue that would no longer be needed to

pay for fire department expenses (the cities’ 2020 levy rates would be $0.6848 Aberdeen and $1.1003

Hoquiam). This would put Aberdeen $1.28 below the statutory maximum rate under the RFA strategy, and

Hoquiam $0.8645 below. Without the RFA, the cities’ 2020 estimated levy rates will be below the cities’

current statutory maximum levy rate by $0.3554 for Aberdeen and $0.0967 for Hoquiam. Hence, the RFA

strategy provides more room for future levy lid lifts for each city.

Figure 105: City Lid Lift Capacity, RFA

2020 Effective City Regular Levy Rates

Aberdeen Hoquiam

City Regular Levy Rate $ 3.1094 $ 3.3681

Fire Department Effective Rate* $ 2.4246 $ 2.2773

City Regular Levy Rate after RFA $ 0.6848 $ 1.0909

City Levy Lid Lift Capacity after RFA $ 1.2800 $ 0.8739

City Levy Lid Lift Capacity Before RFA $ 4.1804 $ 3.9217

*Fire department expenses with all fire-related revenues subtracted out.

Impact on Levy Rates in Both Cities

Under the RFA strategy the same regular, EMS, and excess levy rates will apply to both jurisdictions. The net

impact on the tax rates—and taxes paid—in the predecessor jurisdictions will depend on the excess levy rates

needed to fund services under the current structure. A comparison of the forecasted 2020 status quo levy

rates and the 2020 levy rates under the RFA scenario is provided in the following figure.


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Figure 106: Status Quo vs. RFA Levy Rate Comparison



Aberdeen FD* Regular (3.1094 estimated) $ 2.4246 $ 1.5000 $ (0.9246) EMS $ - $ 0.5000 $ 0.5000

Excess $ - $0.7344 $0.7344

Total $ 2.4246 $2.7344 $0.3098 $303,107 12.8%

Hoquiam FD* Regular (3.3681 estimated) $ 2.2678 $ 1.5000 $ (0.7678) EMS $ 0.4769 $ 0.5000 $ 0.0231

Excess $ - $0.7344 $0.7344

Total $ 2.7447 $2.7344 $(0.0103) $(4,657) -0.4%

* The forecasted regular levy rate for the two cities is listed in parentheses. The figure used in the chart represents the effective levy rate of forecasted city's fire expenses.

As shown in Figure 106, levy rates and property taxes are projected to increase significantly for Aberdeen, but

decrease slightly for Hoquiam. These different outcomes make intuitive sense—the biggest financial impact

of the RFA strategy is to add an EMS levy to Aberdeen where Hoquiam already has one. The expense forecast

under the RFA strategy is the same expense forecast presented earlier in the report.

Summary of Financial Considerations

Implementation of the RFA strategy will have financial implications that the agencies will need to consider

and potentially address. Those implications are summarized as follows:

• Reserve Funding Requirement. The newly formed RFA will need to have adequate reserves to fund ongoing operations and support equipment replacement. The total unrestricted reserves of the cities as of the end of 2017 was an estimated $9,771,000 (Aberdeen has $7.8 million and Hoquiam had $1.9 million). The amount of reserves transferred from each city to an RFA (if any) would need to be negotiated. Using 3 months of expenses as a minimum standard reserve, the new entity would need roughly $2.1 million (more would be preferable to ensure financial stability). In addition, further reserves may be required for the replacement of apparatus or other equipment. To the extent additional reserves are needed, they will need to be factored into the excess levy rate developed in the RFA plan and submitted to voters for approval.

• Revenue Capacity/Surplus for Cities. Upon formation of an RFA, the two cities would no longer be responsible for directly funding fire and EMS services. Using 2020 forecasted amounts, the cities will allocate approximately $3.4 million in city general tax fund revenue to pay for these services. ESCI recommends that savings from the formation of an RFA be used to reduce taxes.

• Tax Burden Shifts. As outlined above, the RFA strategy shifts some of the tax burden for funding fire, EMS, and ambulance services away from the cities and to the RFA.

• Funding for Additional Expenses. Elsewhere in this report ESCI identifies potential investments in personnel, equipment, and information systems. If the cities desire to make those investments, any additional expenses will need to be factored into the revenue required from the excess levy.


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• Firefighter’s Pension Fund. Since RFAs do not have the authority to levy the $0.225 pension fund levy, the two cities’ existing levies and related pension funds would remain in place for existing pensioners. Upon the death of the last pensioner, those funds would dissolve.

Issues & Impacts

• The cities will share in the governance of fire services by the city councils appointing representatives

to the RFA Governing Board as identified in the RFA plan, unless commissioner districts are formed. If

districts are formed, council members would likely still be appointed until commission seats are

elected and seated on the RFA Governing Board.

• The RFA’s tax levy would extend over Aberdeen and Hoquiam. This would reduce the cities’ maximum

tax capacity, but increase their capacity for a levy lid lift, as described previously.

• Outstanding voted bonds will continue to be paid from taxes on the original properties unless

restructured as per the RFA plan.

• All personnel are transferred to the RFA.

• City asset transfers are not required by statute, but are usually addressed in the RFA plan.

• Unresolved claims, litigation, or threatened actions in each separate agency must be identified and

coordinated to safeguard against any inadvertently created gaps in insurance coverage.

• Make-up of the governing board should represent interests of the parties and ensure balance, such

as formation of commissioner districts to ensure balanced representation.

• Legal analysis and review prior to implementation are highly advised.


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Strategy D: Formation of a Municipal Fire District

New (2017) enabling legislation has created the opportunity for a city to form a new fire district that is identical

to the existing boundaries of the city.46 The city council may take action to establish a fire district by passing a

resolution, which must at least contain the following:

• A financing plan for the fire district, including the imposition of revenue sources, such as property

taxes or benefit charges, and

▪ the dollar amount the fire protection district will levy in the first year in which the fire protection

district imposes any regular property taxes;

▪ the city's highest lawful levy, reduced by the Municipal Fire District’s levy amount, which is the

city’s new lawful levy limit since 1986;

▪ the estimated aggregate net dollar amount impact on property owners within the city based on

the changes;

• Set a date for a public hearing on the resolution.

The plan must be approved by the voters of the city at a general election by simple majority, unless a benefit

charge is imposed, which requires sixty percent approval by voters.

If a resolution forming a fire district provides that the fire protection district will be governed by a board of

fire commissioners, then the initial fire commissioners must be elected at the same election where the

resolution is submitted to the voters authorizing the creation of the Municipal Fire District.


This strategy requires no cooperation between the cities. It does provide the opportunity for a Municipal Fire

District to annex the neighboring city, which is a straightforward process. It also requires coordination with

the county elections office and county assessor’s office. The process does ultimately require assent by the

voters for formation.


ESCI predicts that the process could take less than one year from creation of the resolution, development of

the financing plan, conducting of a public hearing, submission to the electorate, and effective date of

formation.

Affected Sections

All sections of the fire department are affected in this strategy, but only marginally in that only the employer

and form of government changes. Implementation of this strategy simply transfers the fire department to a

new fire district with the same service area, same resources, same personnel, and a different governance

structure (fire district commissioners instead of a city council).

46 RCW 52.02.160


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Citizens currently served by the city fire department will see their service provided by a new agency.

Employees of the city fire department will have their employer change, but are to be kept whole by statute

unless a different negotiated agreement is made between the employer and the collective bargaining

representatives currently in place.47

The elected officials from the city may also be affected. Since the governing statutes do not require a separate

board of fire commissioners to be created, the current elected city council (or an appointed subset) serves in

that capacity ex officio, or may relinquish governance authority of the fire district to an independently elected

board of commissioners that is established within the resolution and election forming the fire district, or may

relinquish governance authority of the fire district to an appointed board of three fire commissioners at any

time after formation. Each appointed commissioner serves until successors are elected at the next qualified

election.


The formation of a fire district with boundaries identical to the current boundaries of the city provides

autonomy within the city while also detaching the fire protection services from the municipal government.

The city lowers its maximum property taxing authority by the amount of property taxation the fire district

assesses, making the tax implications potentially neutral to the taxpayers.

All resources and personnel currently employed by the city for the delivery of fire and emergency medical

services are transferred or credited to the fire district. All funds, credits, or other assets held by the city for

fire and EMS services are transferred to the fire district.

ESCI Guidance

As a new statute, ESCI is unaware of any agencies in the State of Washington to implement this strategy. New

territory is being explored. Thus, it would be prudent to acquire legal counsel guidance as the resolution is

drafted and the financing plan crafted. While this would be a first, the process is entirely within the control of

the city forming the fire district. ESCI advises proceeding cautiously if this option is pursued.


Careful analysis of comingled equipment reserve funds set aside for fire apparatus replacement, along with

other municipal equipment unrelated to fire apparatus will be an important consideration. So too are legacy

costs, such as pension liabilities or other post-employment benefits (OPEB) provided for in statute or in

current collective bargaining agreements, for example.

47 RCW 52.02.180 (6)(a)


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Policy Actions

A city contemplating the establishment of a Municipal Fire District must ensure the fire district starts off on

the right foot. Establishing a weak fire district may ultimately cause a drain on municipal finances if, for

example, the fire district starts off with a property tax levy below its maximum authority and insufficient to

provide similar services to what the city fire department had provided historically. In this case, the fire district

would have to levy its maximum property tax levy, requiring the city to reduce its maximum lawful tax rate to

compensate.

In ESCI’s opinion, establishing an independent board of fire commissioners, whether initially or not long after

the district is formed, is key to the fire district’s success. It avoids the appearance of conflicts of interest or the

very real dilemma that may be faced by a city council member acting as an ex officio board member and

having to decide between what is best for the city and what is best for the fire district if the issue under

consideration is mutually exclusive.

ESCI’s review and discussion of Washington State Law on this topic has been necessarily brief; only sufficient

to ensure that basic provisions for district formation exist. As always, we emphasize that we are not qualified

to give legal advice. We recommend the cities consult with legal counsel experienced in such matters before

undertaking this strategy.

Fiscal Analysis

When forming a Municipal Fire District, a city must reduce its general fund regular property tax levy by the

total combined levy of the fire protection district as proposed by the district. The reduced levy amount of the

city must occur in the first year in which the fire district imposes any of the property taxes authorized in RCW

52.16.130, 52.16.140, or 52.16.160. If the fire district does not impose all three levies under RCW 52.16.130,

52.16.140, and 52.16.160 when it begins operations, the city must further reduce its general fund regular

property tax levy if the district initially imposes any of the levies in subsequent years, by the amount of such

levy or levies initially imposed in a subsequent year.

Key Assumptions

Revenues

The following revenue assumptions used in the analysis of Strategy D: Formation of a Municipal Fire District

are the same in as previous scenarios. Property taxes represent the largest source of revenue for the combined

operations.

• An effective date of district formation prior to August 1, 2019. Note that this allows for properties to

be included in the property taxes levied for collection in the following year. Formation after August 1

would result in property taxes levied in the second year following the year of district formation. Note

also that while the most recent reports of actual financial results date to 2017, we made forecasts for

each agency to 2020 to concur with the assumed formation date.

• A levy of the statutory maximum levy rate of $1.50 per $1,000 assessed value is collected for the

municipal district beginning in 2020.


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• Assumption of all debt attributable to the fire department by the Municipal Fire District (other than

voter approved bonds).

• Fire inspections and permitting (and associated revenues) remain within the city. These services could

be performed via contract with the new Municipal Fire District, but they would nevertheless likely be

contracted in a cost-neutral manner.

• Voter approval of a six-year excess levy in August 2019 for collection beginning in 2020 with amounts

equal to the estimated amount needed to balance projected revenue with projected expenses.

Expenses

Expenses under the municipal district strategy are assumed to be the same as those of the city’s department.

Actual expenses under a municipal district approach are likely to be different than these combined expenses.

However, in ESCI’s evaluation of existing staffing, equipment, facility, and operational conditions, we did not

find significant excess capacity that would suggest significant cost savings. While some expenses are likely to

be higher, others are likely to be lower. Using the combined expense projection is considered reasonable for

purposes of this analysis.

Forecast Results

Each city must evaluate and pursue a Municipal Fire District independently. There is no mechanism for the

two cities to form a single district in one step. That said, if one Municipal Fire District were formed, it could

annex the remaining city for fire protection purposes, essentially creating a single fire district serving the two

cities. If two Municipal Fire Districts were formed, they could also merge.

Aberdeen

The revenue forecast for Aberdeen under the municipal district strategy, using the assumptions identified

above, results in annual revenue of $5,987,947 in 2020. A summary of the municipal district strategy

revenue/expense projection is shown in the following figure. Since expenses are projected to grow more

quickly than revenues, the excess levy is initially set to create a surplus. The sum of the resulting surpluses

and deficits is set to equal out over the five-year forecast period. While the concept of the Municipal Fire

District strategy should be close to financially neutral, this provision results in an increase in taxes.

Alternatively, the initial levy could be set to only cover 2020 expenses, in which case the new district would

need to find ways to reduce future expenses or find new revenue sources.


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Figure 107: Municipal Fire District Revenue Projection, Aberdeen

Municipal District Assumed Revenue Sources—Aberdeen

2020 2021 2022 2023 2024 2020–24

% Chg

Regular Property Tax Levy $ 1,467,470 $ 1,487,719 $ 1,508,194 $ 1,528,894 $ 1,549,819 5.6%

EMS Property Tax Levy $ - $ - $ - $ - $ - -

Other Taxes (M&O Levy) $ 1,086,081 $ 1,101,068 $ 1,116,222 $ 1,131,542 $ 1,147,028 5.6%

Ambulance Fees $ 3,484,128 $ 3,578,886 $ 3,674,433 $ 3,770,787 $ 3,867,969 11.0%

Other Revenue $ 131,769 $ 132,906 $ 135,287 $ 136,654 $ 138,323 5.0%

Subtotal Operations $ 6,169,448 $ 6,300,580 $ 6,434,136 $ 6,567,877 $ 6,703,138 8.7%


Bond Levy $ 80,394 N/A- Retired N/A- Retired N/A- Retired N/A- Retired

Total Revenue $6,249,842 $6,300,580 $6,434,136 $6,567,877 $6,703,138

Total Expenses $ 6,068,341 $ 6,221,725 $ 6,439,085 $ 6,654,838 $ 6,871,583

Net Revenue (Deficit) $181,501 $78,855 $(4,950) $(86,961) $(168,445)

The excess levy increases 5.6 percent over the five-year forecast period with annual increases of about 2.1

percent from 2020 through 2024. The resulting levy rates are shown in the following figure.

Figure 108: Municipal Fire District Levy Rate, Aberdeen

Assumed Levy Rates Aberdeen Municipal District

2020 2021 2022 2023 2024

Total Assessed Value $978,313,225 $1,005,142,796 $1,031,972,366 $1,058,801,937 $1,085,631,507


Total EMS Levy $- $- $- $- $-



With new construction and property valuations increasing faster than the 1 percent cap on levy growth, all

levy rates are assumed to decrease over time. This may help enable levy lid lifts in the future, which will be

necessary to help revenues keep pace with inflation.

A comparison of the forecasted 2020 status quo levy rates and the 2020 levy rates under the Aberdeen

Municipal Fire District scenario is provided in the following figure. As shown in Figure 108, levy rates and

property taxes are projected to increase for Aberdeen. The expense forecast under the Municipal Fire District

strategy is the same expense forecast presented previously in the report.


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Figure 109: Status Quo versus Municipal Fire District Levy Rate Comparison

Aberdeen Fire Dept.*




EMS $ - $ - $ -

Excess $ - $ 1.1102 $ 1.1102

Total $ 2.4246 $ 2.6102 $ 0.1856 $ 181,533 7.7%

* The forecasted regular levy rate Aberdeen is listed in parentheses. The figure used in the chart represents the effective levy rate of forecasted city's fire expenses.

Hoquiam

The revenue forecast for Hoquiam under the Municipal District strategy, using the assumptions identified

above, results in annual revenue of $5,987,947 in 2020. A summary of the Municipal District strategy

revenue/expense projection is shown in the following figure. Since expenses are projected to grow more

quickly than revenues, the excess levy is initially set to create a surplus. The sum of the resulting surpluses

and deficits is set to equal out over the five-year forecast period. While the concept of the Municipal Fire

District strategy should be close to financially neutral, this provision results in an increase in taxes.

Alternatively, the initial levy could be set to only cover 2020 expenses, in which case the new district would

need to find ways to reduce future expenses or find new revenue sources.

Figure 110: Municipal Fire District Revenue Projection, Hoquiam

Municipal District Assumed Revenue Sources—Hoquiam

2020 2021 2022 2023 2024 2020–24

% Chg

Regular Property Tax Levy $677,077 $685,150 $693,311 $701,558 $709,893 4.8%

EMS Property Tax Levy $225,692 $228,383 $231,104 $233,853 $236,631 4.8%

Other Taxes (M&O Levy) $425,090 $430,159 $435,282 $440,460 $445,693 4.8%

Ambulance Fees $1,767,229 $1,802,573 $1,838,625 $1,875,397 $1,912,905 8.2%

Other Revenue $160,000 $160,000 $160,000 $160,000 $160,000 0.0%

Subtotal Operations $3,255,089 $3,306,266 $3,358,321 $3,411,268 $3,465,122 6.5%


Bond Levy $181,119 $183,283 $185,466 $187,665 $189,883

Total Revenue $3,436,207 $3,489,549 3,543,787 $3,598,934 $3,655,005

Total Expenses $3,355,378 $3,454,075 $3,552,588 $3,644,228 $3,738,644

Net Revenue (Deficit) $80,829 $35,475 $(8,801) $(45,294) $(83,639)

The excess levy increases 4.8 percent over the five-year forecast period with annual increases of about 1.6

percent from 2020 through 2024. The resulting levy rates are shown in the following figure.


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Figure 111: Municipal Fire District Levy Rate, Hoquiam

Assumed Levy Rates Hoquiam Municipal District

2020 2021 2022 2023 2024

Total Assessed Value $451,384,811 $465,293,606 $479,202,401 $493,111,196 $507,019,991


Total EMS Levy $0.5000 $0.4908 $0.4823 $0.4742 $0.4667



With new construction and property valuations increasing faster than the 1 percent cap on levy growth, all

levy rates are assumed to decrease over time. This may help enable levy lid lifts in the future, which will be

necessary to help revenues keep pace with inflation.

A comparison of the forecasted 2020 status quo levy rates and the 2020 levy rates under the Hoquiam

Municipal Fire District scenario is provided in the following figure. As shown below, levy rates and property

taxes are projected to increase. The expense forecast under the Municipal Fire District strategy is the same

expense forecast presented previously in the report.

Figure 112: Status Quo versus Municipal Fire District Levy Rate Comparison

Hoquiam Fire Dept.*






EMS $ 0.4769 $ 0.5000 $ 0.0231

Excess $ - $ 0.9417 $ 0.9417

Total $ 2.7447 $ 2.9417 $ 0.1970 $ 88,924 7.2%

* The forecasted regular levy rate for Hoquiam is listed in parentheses. The figure used in the chart represents the effective levy rate of forecasted city's fire expenses.

Impact on the Cities’ Property Tax Levies

Formation of a Municipal Fire District will impact the cities’ property tax levies in two ways. First, it will reduce

the cities’ statutory maximum levy rate. Second, it will create more room for a potential levy lid lift. Despite a

reduction in levy, it will not create “banked” capacity.

If a city forms a Municipal Fire District, its statutory maximum property tax levy rates will decrease from $3.465

per $1,000 of assessed value (after accounting for the library district) to $1.965 per $1,000 of assessed value

(see Figure 113). The decrease is due to subtracting the Municipal Fire District’s statutory maximum levy rate

of $1.50 from the city’s statutory maximum levy rate.


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Figure 113: City Maximum Levy Rate Effect, Municipal Fire District

2020 Levy Rate: Municipal Fire District Strategy

Levy Rate

City Statutory Base Levy Rate $ 3.375

Add Levy with Library District $ 0.225

Add Levy with Fire Pension Fund $ 0.225

Subtotal, Maximum Levy Rate $ 3.825

Subtract Actual Library Rate* $ (0.360)

Subtract District Regular Levy Rate $ (1.500)

Maximum Levy Rate—With District** $ 1.965

*Library may raise rate to $0.5 via lid lift, further limiting each city's levy capacity. **Fire Pension Fund to remain with city and is assumed to be $0.225, leaving $1.6 for general use.

While the cities’ maximum levy rate is reduced, so will their levy needs. ESCI strongly recommends that the

cities reduce their regular tax levies by an amount equal to the portion of property taxes formerly used to

fund their fire departments (see Figure 114). Aberdeen’s 2020 regular levy rate is estimated to be $3.1094,

while Hoquiam’s is estimated to be $3.3681. After subtracting the general fund tax revenue allocated to fund

the fire departments ($2.4246 Aberdeen and $2.2678 Hoquiam), revenue that would no longer be needed to

pay for fire department expenses, the cities’ 2020 levy rates would be $0.6848 Aberdeen and $1.1003

Hoquiam. This would put Aberdeen $1.28 below the statutory maximum rate under the RFA strategy, and

Hoquiam $0.8645 below. Without the Municipal Fire District, the cities’ 2020 estimated levy rates will be

below the current statutory maximum levy rate by $0.3554 for Aberdeen and $0.0967 for Hoquiam. Hence,

the Municipal Fire District strategy provides more room for future levy lid lifts for each city.

Figure 114: City Lid Lift Capacity, Municipal Fire District

2020 Effective City Regular Levy Rates

Aberdeen Hoquiam

City Regular Levy Rate $ 3.1094 $ 3.3681

Fire Department Effective Rate* $ 2.4246 $ 2.2773

City Regular Levy Rate after District $ 0.6848 $ 1.0909

City Levy Lid Lift Capacity after District $ 1.2800 $ 0.8739

City Levy Lid Lift Capacity Before District $ 4.1804 $ 3.9217

*Fire department expenses with all fire-related revenues subtracted out.

As indicated in Figure 113, under the Municipal Fire District strategy each City’s property tax levy would be

limited to $1.965 per $1,000 assessed value ($1.825 if the library levies its full capacity). This would normally

leave the city with a high banked capacity. However, the enabling legislation includes specific language that

calls for a city to reduce its highest lawful levy—which is the basis for the 1 percent maximum annual increase.

The legislature took away the potential for a windfall and made a city exercising this option reduce its levy by

the full amount of the fire district levy and made that new city levy its new cap or “highest lawful levy since

1986.”


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Summary of Financial Considerations

Implementation of the Municipal Fire District strategy will have financial implications that the cities will need

to consider and potentially address. Those implications are summarized as follows:

• Reserve Funding Requirement. The newly formed Municipal Fire District will need to have adequate reserves to fund ongoing operations and support equipment replacement. The total unrestricted reserves of the cities as of the end of 2017 was an estimated $7.8 million for Aberdeen and $1.9 million for Hoquiam. The amount of reserves transferred from each city to its district (if any) would need to be negotiated. Using three months of expenses as a minimum standard reserve, the new Aberdeen District would need roughly $1.5 million and the new Hoquiam District would need about $800,000 (more would be preferable to ensure financial stability). In addition, further reserves may be required for the replacement of apparatus or other equipment. To the extent additional reserves are needed they will need to be factored into the excess levy rate submitted to voters for approval.

• Revenue Capacity/Surplus for Cities. Upon formation of the Municipal Fire District, the city would no longer be responsible for directly funding fire and EMS services. Using 2020 forecasted amounts, Aberdeen will allocate approximately $2.4 million in city general tax fund revenue to pay for these services and Hoquiam will allocate $1 million. ESCI recommends that savings from the formation of a Municipal Fire District be used to reduce taxes. Otherwise the change would increase total taxes to the residents.

• Tax Burden Shifts. As outlined above, the Municipal Fire District strategy shifts some of the tax burden for funding fire, EMS, and ambulance services away from the city and to the Municipal Fire District.

• Funding for Additional Expenses. Elsewhere in this report ESCI identifies potential investments in personnel, equipment, and information systems. If the cities desire to make those investments, any additional expenses will need to be factored into the revenue required from the excess levy.

• Firefighter’s Pension Fund. Since Municipal Fire Districts do not have the authority to levy the $0.225 pension fund levy, the cities’ existing levies and related pension funds would remain in place for existing pensioners. Upon the death of the last pensioner, those funds would dissolve.

Issues & Impacts

• The city exercising this option will have no direct control over fire services.

• The Municipal Fire District’s tax levy would extend over the city forming the district. This would reduce

the cities’ tax capacity, but increase its capacity for a levy lid lift, as described above.

• Outstanding bonds remain with originating properties.

• All city fire department personnel are transferred to the fire district.

• City asset transfers would need to be negotiated and agreed upon prior to submission of the district

formation initiative to the voters.

• Unresolved claims, litigation, or threatened actions in each separate agency must be identified and

coordinated to safeguard against any gaps in insurance coverage inadvertently created.

• Since Municipal Fire Districts do not have the authority to levy the $0.225 pension fund levy, the city’s

existing levy and related pension funds would remain in place for existing pensioners. Upon the death

of the last pensioner, those funds would dissolve.

• Legal analysis and review prior to implementation are highly advised.


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Findings ESCI found the two study agencies to be fully engaged and willing participants in this study. The amount of

data requested by ESCI from the agencies was daunting, but all provided the data and made themselves

available for interviews, draft reviews, and remained dedicated to the quality and accuracy of this report.

The two fire agencies participating in this study vary to some degree in size and structure, but not significantly

so. They both serve their cities from two fire stations and their apparatus configurations are similar. Aberdeen

is more densely populated at approximately twice the population in a smaller service area. Both agencies

provide advanced life support (ALS) ambulance transportation services to their constituents, as well as to a

larger regional network of agencies. Both are challenged to meet the needs of their communities while

meeting the needs of the broader region for ALS transport services.

The staffing levels for both organizations are severely limited—Hoquiam’s is especially so—relying on cross-

staffing of units depending on the call type being requested. The shift commander position is a Shift Battalion

Chief in AFD, which is a standard approach for fire service organizations. Hoquiam’s shift commander is a Shift

Captain who is part of the crew strength at Headquarters but also staffs the command vehicle at the

Headquarters Station.

There are numerous strategic partnerships that could be explored by the agencies for greater efficiency.

Regardless of the path(s) chosen by the agencies as it pertains to this report, the participants should pursue

these regional efforts for cost effectiveness, efficiency, and for the benefit of their respective citizens. These

include:

• Vehicle Repair and Maintenance Services

• Training Division

• Fire Investigation Team (FIT)

• Recruit Academy

• Peak Demand Response Unit (Dropped Boundary)

• Regional Logistics Division

▪ Joint Purchasing & Supply Standardization

▪ Warehousing of Replenishable Supplies

▪ Just-in-Time Inventory Management & Delivery

• Regional Command Officer Response (Dropped Boundary)

• Leadership (One Fire Chief serving both cities)

Generally, integration should be between similarly situated agencies to avoid the expense and challenges

associated with providing service to two different community characteristics and risk profiles (e.g., urban

versus rural). In this case, the two agencies are similar in risk, structure, and approach, thereby making it highly

desirable to integrate into a single response system serving both cities.


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Recommendations Strategy A (Status Quo) provides no improvement as it represents no change over the current conditions, but

it is always an option. It is not recommended.

Strategy B (Contract for Services) may provide for streamlining the organizations. It also ensures that each

organization retains its individual taxing authority but operates as a single entity. Following the cost allocation

formulas included in this report can assist the two cities in determining the best option for each of the

participants. ESCI considers this a potential intermediate step toward a more permanent integration, but not

the preferred strategy.

Strategy C (Regional Fire Authority) provides the greatest flexibility among the so-called “permanent”

integration strategies, and has the potential to control costs and enhance service to the participants. It

includes the opportunity for shared governance between the two agencies.

Strategy D (Municipal Fire District) is simply converting a city fire department into a fire district, transferring

the fiscal burden from the city to the fire district. The city council can act as the board of fire commissioners

(not recommended) or can temporarily fill those positions until fire commissioners are elected to fill the seats

(preferred). While a relatively straightforward process, this is a new concept with new enabling legislation. It

has not been attempted in Washington State and therefore has the inherent risks associated with “going first.”

It also has the net effect of swapping governance structure with little else changed. To integrate the two fire

departments following formation of a Municipal Fire District, the Municipal Fire District need only annex the

remaining city fire department, becoming one agency. ESCI believes the dynamics between the two cities may

represent a very good case for the state’s first example of this new strategy, as part of a larger strategy toward

integration (see below).

ESCI has analyzed the fiscal position of both agencies. Neither has much capacity to absorb additional expense.

The fiscal projections for the integration options have been intentionally conservative to ensure that the

agencies can sustain whatever path is chosen. However, steps can be taken to reduce expense and consolidate

efforts to make integration more palatable financially. This is done by relying on resources and capacity each

agency has in place currently (e.g., Fire Chief, Shift Battalion Chief).

Recommendation—Step 1

ESCI recommends Strategy B (Contract for Services), where AFD and HFD integrate via contract for all services

(AFD being the contractor providing service to HFD). The intent of a contract is to determine actual costs and

efficiencies through experience as one organization. In doing so, many organizations have found efficiencies

not readily identifiable in advance. Further, many such organizations also find opportunities to increase

service at no net cost through the blending of the two agencies’ resources. This is the cautious approach to

integration.

Of course, there are challenges with every strategy. One challenge with this strategy is the disparate financial

capabilities of the two cities. Any contract between AFD and HFD needs to be carefully constructed to protect

HFD budget capacity while allowing for increasing expenses for the integrated department.


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Recommendation—Step 2

After operating under a contract for a period of a year or two, the agencies can then pursue either Strategy

D (Municipal Fire District) or Strategy C (Regional Fire Authority), or continuing the contract. By pursuing a

Municipal Fire District, the agencies are effectively taking the steps to make the contract permanent, allowing

the contractor to form the district and annex the other city. By pursuing a Municipal Fire District strategy, the

agencies would essentially need a net increase in revenue of either $181,533 for Aberdeen or $88,924 for

Hoquiam.

Alternatively, the agencies can pursue a regional fire authority, ensuring that there is shared governance

between the two cities or their representatives. This route ensures that there is equal representation

governing the fire department and that the interests of both parties are actively represented on a daily basis.

This is also the more expensive route to take in that ESCI projects the costs to increase by approximately

$300,000 over the current expenses—$303,107 for Aberdeen and $(4,657) for Hoquiam. ESCI projects that

the agencies would need to run an excess levy to make either an RFA or a Municipal Fire District formation

sustainable, as it will no longer rely on either city for subsidy.

In any integration model, the combined agency would need to perform a utility rate study with the intention

of achieving a single rate across both jurisdictions. This study should incorporate both the EMS Utility Fee and

the Ambulance Transport Fees with the goal of achieving revenue streams (combined with EMS Levies) that

balance EMS expenses.

Implementation The process of considering and implementing any of these recommendations starts first with a shared vision

by the policymakers of the participating agencies. From the vision, goals and objectives can be identified

which, if accomplished, propel the agencies toward the vision. This process, in essence, is the framework of a

strategic plan for integration.

An integrated organization is efficient in that it eliminates the vacant Hoquiam Fire Chief, utilizes the Aberdeen

Battalion Chiefs in Hoquiam, thus allowing the Hoquiam shift commanders to serve on engine companies full-

time as originally intended (increasing Hoquiam Engine 1 staffing). It fills the vacant assistant chief for

Hoquiam, but within a framework that complements the positions retained by Aberdeen. Reserve apparatus

can be reduced for both agencies since only one reserve fire engine is required for every eight frontline fire

engines, and one reserve ladder truck for every frontline ladder truck.48 An integrated organization chart is

illustrated in the following figure. Note the future placeholder for small groups of personnel needed for risk

management (primarily fire prevention), training, and maintenance. These tasks can, in the short term, be

performed by personnel on shift to the extent possible. However, the groups will eventually need to be staffed

long term within these cadres.

48 Washington Surveying & Rating Bureau Public Protection Class deficiency point guide.


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The two organizations separately have been operated in an extremely lean environment. Combining two lean

organizations with the same resources and expecting the result to be less lean is not realistic. The efficiency

created due to the elimination of the Hoquiam Fire Chief can offset some of the gaps in these programs.

However, ESCI advises taking a cautious approach to growth or risk bogging down the integration financially.

Figure 115: Integrated Organizational Chart

Contract for Services

The first recommendation ESCI makes is to establish a contractual relationship between the two city fire

departments for full services. This can actually be done as a precursor to formation of a Municipal Fire District

(or an RFA), or can occur immediately after a Municipal Fire District is formed.


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ESCI recommends that Aberdeen be the contractor, providing all fire services to Hoquiam. ESCI advises the

transferring of all HFD employees, apparatus, and fire facilities to AFD via the contract, with a separation

clause that allows for reconciliation if necessary in the future. Finally, ESCI advises that the contract be

performance based. In other words, the contract should be focused on outcomes (response time

performance, cost containment, etc.), not on level of effort.

Municipal Fire District

The process of forming a Municipal Fire District is straightforward and is addressed in this report as well as in

RCW. A checklist follows which illustrates the high points of the formation of a Municipal Fire District.

Municipal Fire District Checklist

If conducted as part of a strategy to integrate with the other city, determine which city will pursue the Municipal Fire District (ESCI recommends Aberdeen).

City forming the Municipal Fire District develops a financing plan for the fire district, including the imposition of revenue sources, such as property taxes or benefit charges, and:

▪ the dollar amount the fire protection district will levy in the first year in which the fire protection

district imposes any regular property taxes;

▪ identify the city’s highest lawful levy, reduced by the Municipal Fire District’s levy amount, which

is the city’s new lawful levy limit since 1986;

▪ the estimated aggregate net dollar amount impact on property owners within the city based on

the changes;

Set a date for a public hearing on the resolution.

If approved by council, submit approved resolution to County Elections office for election at a general election.

If passed by simple majority (unless the funding also includes a benefit charge, which requires 60 percent approval), the Municipal Fire District is formed.

If the Municipal Fire District will be governed by a board of fire commissioners (recommended), then the initial fire commissioners must also be elected at the same election.

Collaborate with the city not forming the Municipal Fire District to determine timing of annexation into the Municipal Fire District, as well as representation on board of fire commissioners (commissioner districts).

Transfer any inter-city contracts developed in interim step (above) to the new district.

ESCI recommends a Municipal Fire District expressly to create a mechanism for the two city fire departments

to become one. Therefore, if this option should be pursued, it should be done with the expectation that

annexation of the remaining city will occur immediately after formation of the Municipal Fire District.


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RFA Plan

ESCI includes this as an option because we believe this is the stronger form of government for a consolidated

department (shared governance and balanced representation). We also recognize that this option is more

expensive and therefore likely to be less palatable to voters. It should be pursued only if the cities’ leadership

is confident of voter willingness to accept the additional tax burden in exchange for a more robust fire

protection system.

If the RFA path is chosen, it must begin by establishing an RFA Planning Committee. The makeup and purpose

of the RFA Planning Committee is outlined in this report and is spelled out in statute. It is imperative that the

elected officials have a deeper understanding of an RFA. Only then can they fully engage in possibilities

thinking and develop what is a new charter for fire services within the RFA service area. This process is time-

consuming, so the work of this committee can continue while the agencies operate under a contract.

The process of forming an RFA is prescribed in RCW and within this report. A checklist follows which illustrates

the high points of the RFA planning committee formation and actions.

RFA Plan Checklist

Each agency appoints three elected officials to the RFA Planning Committee.

Must comply with Open Public Meetings Act; advanced notice of meetings, public input.

Elect chair, vice-chair, to preside over meetings and secretary to record/post minutes, etc.

Develop/Approve rules & procedures for meetings (quorum, motions, Roberts Rules of Order, etc.).

Meeting scheduled well in advance.

Assignment of staff/subcommittees and due dates (Governance, Operations, Financial, Staffing, Bargaining unit, Management).

RFA-Planning Committee consideration of subcommittee recommendations.

Provisional approval or modification of recommendations by RFA-PC.

Legal review as to form, procedures, etc.

Adoption of RFA Plan by planning committee.

Each participating agency’s elected body approves the plan.

Joint resolution calling for an election within each jurisdiction approved and submitted to the county elections office.

If election passes, RFA is formed. Any lag in tax collection must be planned for. There are several sample RFA plans in the public domain that can assist the agencies in pursuing this

framework.


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APPENDIX A: TABLE OF FIGURES

Figure 1: Greater Grays Harbor Inc. Economic Indicators, 2018 (data for 2017) ............................................. 11

Figure 2: Aberdeen Fire Department Organization Chart ................................................................................ 12

Figure 3: Hoquiam Fire Department Organization Chart .................................................................................. 15

Figure 4: Responses by Agency and by Type, 2017 .......................................................................................... 16

Figure 5: Mutual and/or Automatic Aid Responses, 2017 ................................................................................ 17

Figure 6: Top Three Critical Issues Facing the Fire Department ....................................................................... 18

Figure 7: Critical Equipment Testing Intervals .................................................................................................. 20

Figure 8: AFD Station 1...................................................................................................................................... 22

Figure 9: AFD Station 2...................................................................................................................................... 23

Figure 10: HFD Station 1 ................................................................................................................................... 24

Figure 11: HFD Station 2 ................................................................................................................................... 25

Figure 12: AFD Station 1 Apparatus .................................................................................................................. 26

Figure 13: AFD Station 2 Apparatus .................................................................................................................. 26

Figure 14: HFD Station 1 Apparatus .................................................................................................................. 27

Figure 15: HFD Station 2 Apparatus .................................................................................................................. 27

Figure 16: Apparatus Replacement Criteria ...................................................................................................... 28

Figure 17: AFD Staffing Configuration............................................................................................................... 29

Figure 18: HFD Staffing Configuration .............................................................................................................. 29

Figure 19: Health, Safety & Counseling Services .............................................................................................. 31

Figure 20: Hiring Process Components ............................................................................................................. 31

Figure 21: Administrative & Support Uniformed Staff Positions ...................................................................... 35

Figure 22: Operations Staff Positions ............................................................................................................... 36

Figure 23: Theoretical Relief Factor Calculation (2017) .................................................................................... 37

Figure 24: Calculated Operational Staff Shortage/Overage ............................................................................. 37

Figure 25: Sample Critical Task Staffing Need Based on Level of Risk .............................................................. 40

Figure 26: Operations Pay Classifications By Department ................................................................................ 42

Figure 27: Uniformed Staff 2018 Average Salary Comparisons ........................................................................ 42

Figure 28: Uniformed Employee Benefits ......................................................................................................... 43

Figure 29: Operations Staff Work Schedule ...................................................................................................... 44

Figure 30: Commercial Driver Rules for Work Hours ........................................................................................ 45

Figure 31: AFD-HFD Study Area Historical Service Demand, 2016–2018 ......................................................... 46


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Figure 32: AFD-HFD Study Area Service Demand by NFIRS Category, 07/01/2018–03/31/2019 .................... 47

Figure 33: AFD-HFD Study Area Categorized as Fire, EMS, and Other, 07/01/2018–03/31/2019 ................... 47

Figure 34: AFD-HFD Study Area Service Demand by Month, 07/01/2018–03/31/2019 .................................. 48

Figure 35: AFD-HFD Study Area Service Demand by Day of the Week, 07/01/2018–03/31/2019 .................. 48

Figure 36: AFD-HFD Study Area Service Demand by Hour of the Day, 07/01/2018–03/31/2019.................... 49

Figure 37: AFD-HFD Study Area Incident Density, 07/01/2018–03/31/2019 ................................................... 50

Figure 38: AFD-HFD Study Area Fire Incidents and Overall Incident Density, 07/01/2018–03/31/2019 ......... 51

Figure 39: AFD-HFD Study Area and Adjacent Fire Jurisdictions ...................................................................... 52

Figure 40: AFD-HFD Study Area Population Density, 2010 Census Data .......................................................... 53

Figure 41: AFD-HFD Ambulance Service Areas and Service Demand, 07/2018–3/2019 .................................. 54

Figure 42: AFD-HFD Study Area Engine Company Distribution, WSRB Criteria ................................................ 56

Figure 43: AFD-HFD Study Area Aerial Apparatus Distribution, WSRB Criteria ................................................ 57

Figure 44: AFD-HFD Study Area Travel Time Model ......................................................................................... 59

Figure 45: AFD/HFD Study Area Travel Time Model and 07/01/2018–03/31/2019 Service Demand ............. 60

Figure 46: AFD-HFD Study Area Station Concentration, 8 Minutes Travel ....................................................... 61

Figure 47: AFD-HFD Study Area Full First Alarm (Structure Fire), 8 Minutes’ Travel ........................................ 62

Figure 48: AFD-HFD Study Area Apparatus Drawdown, 07/01/2018–03/31/2019 .......................................... 63

Figure 49: AFD-HFD Study Area Concurrent Incidents, 07/01/2018–03/31/2019 ........................................... 64

Figure 50: AFD-HFD Unit Hour Utilization, 07/01/2018–03/31/2019 .............................................................. 65

Figure 51: AFD-HFD Emergency Response Time Frequency (City), 07/01/2018–03/31/2019 ......................... 67

Figure 52: AFD-HFD Response Performance (Aberdeen and Hoquiam), 07/01/2018–03/31/2019 ................ 67

Figure 53: NFPA 1710 Response Performance Criteria..................................................................................... 68

Figure 54: Overall Components of Response Performance (Aberdeen and Hoquiam), 07/01/2018–03/31/2019 .................................................................................................................................................................. 69

Figure 55: AFD-HFD Emergency Turnout Time Performance (Aberdeen and Hoquiam), 07/01/2018–03/31/2019 ............................................................................................................................................... 70

Figure 56: AFD-HFD Emergency Travel Time Performance (Aberdeen and Hoquiam), 07/01/2018–03/31/2019 .................................................................................................................................................................. 71

Figure 57: AFD-HFD Response Time by Incident Category (Aberdeen and Hoquiam), 07/01/2018–03/31/2019 .................................................................................................................................................................. 72

Figure 58: AFD-HFD Mutual or Automatic Aid, 07/01/2018–03/31/2019 ....................................................... 73

Figure 59: AFD-HFD Study Area, Adjacent Fire Districts ................................................................................... 75

Figure 60: Training Hours, 2017 ........................................................................................................................ 77

Figure 61: Training Program Administration & Management .......................................................................... 78


174

Figure 62: Fire, Injury, & Illness Prevention Program Components ................................................................. 83

Figure 63: Adopted Fire & Building Codes in Aberdeen & Hoquiam (2018) ..................................................... 83

Figure 64: Occupancy Inspection Programs at AFD & HFD ............................................................................... 84

Figure 65: AFD & HFD New Construction Plans & Inspections ......................................................................... 85

Figure 66: AFD & HFD Fire-Cause Investigation Components .......................................................................... 86

Figure 67: AFD & HFD Data Collection & Analysis ............................................................................................ 87

Figure 68: AFD & HFD Public Information & Education Programs & Activities ................................................ 88

Figure 69: Six Steps of a CRR Plan ..................................................................................................................... 89

Figure 70: Communications Center Organizational Structure .......................................................................... 91

Figure 71: Grays Harbor Communications Center Staffing ............................................................................... 92

Figure 72: Communications Performance Standards ....................................................................................... 93

Figure 73: GHCC Fire & EMS Call Volumes (2016 & 2017) ................................................................................ 93

Figure 74: Risk (Impact/Probability) Matrix ...................................................................................................... 98

Figure 75: Proposed Apparatus Replacement Formula .................................................................................. 101

Figure 76: Other Regional Clinical Facilities .................................................................................................... 105

Figure 77: Comparison of AFD & HFD EMS Records Management Systems .................................................. 105

Figure 78: EMS Quality Management Components by Department .............................................................. 107

Figure 79: Fire Departments providing Medical First-Response .................................................................... 110

Figure 80: Combined AFD & HFD Personnel with Advanced EMS Certifications ............................................ 113

Figure 81: Estimated Costs of Premium Pay for Advanced-Level EMS Personnel (2018) .............................. 114

Figure 82: Top Ten AFD Provider Impressions (2/19/2018–1/11/2019) ........................................................ 116

Figure 83: Historic Populations ....................................................................................................................... 118

Figure 84: Annual Unemployment Rates, 1990–2017 .................................................................................... 119

Figure 85: Property Tax Statistics.................................................................................................................... 120

Figure 86: Comparison Measures ................................................................................................................... 121

Figure 87: Total Fire/EMS Expenditure Growth .............................................................................................. 123

Figure 88: Aberdeen Expenditures and Fund Balances .................................................................................. 124

Figure 89: Aberdeen Forecasts ....................................................................................................................... 125

Figure 90: Total Fire/EMS Expenditure Growth .............................................................................................. 127

Figure 91: Hoquiam Expenditures and Fund Balances ................................................................................... 128

Figure 93: Cost Allocation by Service Area (2017) .......................................................................................... 141

Figure 94: Cost Allocation by Assessed Value (2017) ..................................................................................... 142

Figure 95: Cost Allocation by Resource Deployment (2017) .......................................................................... 143


175

Figure 96: Cost Allocation by Service Demand (2017) .................................................................................... 144

Figure 97: Cost Allocation by Population, (2017) ........................................................................................... 145

Figure 98: Summary of Cost Allocation Factors by Percentage (2017)........................................................... 147

Figure 99: 50% Assessed Value and 50% Service Demand (2017) .................................................................. 147

Figure 100: 50% Service Demand, 25% Resources, 25% Assessed Value, (2017) .......................................... 147

Figure 101: All Variables at Equal Weights of 20% Each, (2017) .................................................................... 147

Figure 102: RFA Revenue Projections ............................................................................................................. 153

Figure 103: RFA Levy Rates, Projected ............................................................................................................ 153

Figure 104: City Maximum Levy Rate Effect, RFA ........................................................................................... 154

Figure 105: City Lid Lift Capacity, RFA ............................................................................................................. 154

Figure 106: Status Quo vs. RFA Levy Rate Comparison .................................................................................. 155

Figure 107: Municipal Fire District Revenue Projection, Aberdeen ................................................................ 161

Figure 108: Municipal Fire District Levy Rate, Aberdeen ................................................................................ 161

Figure 109: Status Quo versus Municipal Fire District Levy Rate Comparison ............................................... 162

Figure 110: Municipal Fire District Revenue Projection, Hoquiam ................................................................. 162

Figure 111: Municipal Fire District Levy Rate, Hoquiam ................................................................................. 163

Figure 112: Status Quo versus Municipal Fire District Levy Rate Comparison ............................................... 163

Figure 113: City Maximum Levy Rate Effect, Municipal Fire District .............................................................. 164

Figure 114: City Lid Lift Capacity, Municipal Fire District ............................................................................... 164

fire department cooperative services feasibility study

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